Bulacan State University

COLLEGE OF CRIMINAL JUSTICE EDUCATION

City of Malolos, Bulacan

tungo sa katarungang salig sa katwiran

(ad iustitiam per ius)

CRIMINOLOGY 306
DISPUTE RESOLUTION
AND CRISIS MANAGEMENT

Crisis Management
Authors:

ALEXANDER M. DIONISIO, RCrim, Ph.D.

PSUPT. MARIO B. GARCIA, Ret.

TABLE OF CONTENT
Table of Content

Syllabus……………………………………………………………………………….. 2

Declaration……………………………………………………………………………. 23

MODULE1: CRISIS MANAGEMENT COMMITTEE…………………………….

Crisis Management Committee
Incident Command System
Working Synergies
National Level Crisis Management Committees
Local Level Crisis Management Committees
Crisis Management Organizations Abroad
Crisis Escalation Protocol

MODULE 2:SITUATION AWARENESS………………………………………….

Strategic Situation Awareness
Operational Situation Awareness
Tactical Situation Awareness

MODULE 3: CRISIS PREVENTION MEASURES………………………………..

Policy Process in Crisis Management
Inter-Agency Contingency Planning
Crisis Action Plan

MODULE 4: BUILDING AND ENHANCING CRISIS MANAGEMENT

CAPABILITIES………………………………………………………
Principles in Capabilities BuildingandEnhancement
Principles in Conducting Needs Assessments/ Vulnerabilities’
Assessment of Capabilities to Determine Effective andEfficient Crisis Management
Principles in Capabilities Enhancement orBuildingPlans
Principles inSustaining Capability
Principles in Prevention and Mitigation of anIncident from Becoming a Crisis
Principles in Evaluating Crisis orEmergency Operations
Principles in Making Multi-Year CapabilitiesDevelopmentPlan
Principles in Annual CapabilityDevelopmentIncrement
Principle for CapabilityResourceManagement
Principles in FosteringStakeholders’Relationships

MODULE 5: APPLYING COMMAND AND CONTROL IN CRISIS

MANAGEMENT………………………………………………….
FundamentalPrinciples
Command andControlSystem

MODULE 6: POST-ACTION AND ASSESSMENT………………………

Activities in Post-ActionandAssessment
HandoverofResponsibility

APPENDIX

GLOSSARY TERMS
KEY PRINCIPLES IN CRISIS MANAGEMENT

MIDTERM EXAMINATION

FINAL EXAMINATION
GLOSSARY

AdministrativeControl(ADCON)-isadirectionorexerciseofauthorityoversubordinateorother
organizations in respect to administration and support, including organization of Service
forces,controlofresourcesandequipment,personnelmanagement,unitlogistics,individual and
unit training, readiness, mobilization, demobilization, discipline, and other matters not
included in the operational missions of the subordinate or otherorganizations

Affectation - disease; morbid symptom; malady; as, a pulmonary affection. To have an

influence on 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 ang
gumagawa. sk (singkahulugan): pakisuyo, tulong, bataris, suyuan

“bayani” is situated in his or her (the word “bayani” is not gender-specific) relation to the
community,andtheverbsense,infact,stressescommunityspirit--workingforfreetheway we
have always known the “bayanihan” spirit tobe

“Bayani” as concept and word can have any of these three applications: “bayani” as a
person;“kabayanihan”asaheroicact;and“bayani”asaheroicgroup,communityornation

The core value in being “bayani” is recognition of and deference to the interest of what is
bigger than the individual, like the group, the community, the nation, even humanity and
nature. 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 critical
historicalmoments,he/shemusthavealloratleastmostofthefollowing:(1)determination; (2)
Perseverance;(3)courage;(4)diligence;(5)enthusiasm;(6)humility;and(7)inspiration and
effect of inspiringothers.

Capability-Building - efforts aimed to develop human skills or societal infrastructure within

a community or organization needed to reduce the level of risk; includes development of
institutional, financial, political and other resources, such as technology at different levels
and sectors of the society

Capability Components - component parts of capability are leadership; people;

coordination,
cooperationandcommunication;organization;training;sustainability;exercises;equipment;
community awareness andsupport

CapabilityEnhancement-requiredactivitiesforstakeholderswhohaveexperiencedresponding
or pre-empting the occurrence of acrisis

Capacity-referstotheabilityofthepeople,organizationsandsocietyasawholetopreparefor,
respond to and recover from the impact of crises ordisasters

Chain of Command - is the succession of leadership from a superior to a subordinate

through which command is exercised. Also called command channel
Civil Society Organizations - also known as CSOs, include non-government organizations
(NGOs), trade unions, faith-based organizations, indigenous peoples movements and
foundations

Collaboration Scheme - has the following components: Stakeholders with vested interests
in collaboration; Trusting relationships among and between the partners; A shared vision
and commongoalsforthecollaboration;Expertise;Teamworkstrategies;Opencommunication;
Motivatedpartners;Meanstoimplementandsustainthecollaborativeeffort;and,Anaction plan
Command Post (CP) - is a unit’s or subunit’s headquarters where the commander and the
staff perform their activities. It is the principal facility employed by the commander to
control operations

Community Resilience – is the sustained ability of a community to withstand and recover

from adversity. It may also refer to practices or experiences emphasizing local
empowerment and helping minimize the likelihood of chronic dependency by returning
individuals to
economicallyproductiveroutines,andhelpingaffectedcommunitiesparticipateactivelyina
substantial amount of rebuildingactivities

Concept of Operations - (1) is a verbal or graphic statement, in broad outline, of a

commander’s assumptions or intent in regard to an operation or series of operations. The
concept of operations frequently is embodied in operation plans particularly when the
plans cover a series of connected operations to be carried out simultaneously or in
succession. The concept is designed to give an overall picture of the operation. It is
included primarily for additionalclarityofpurpose;
(2)isaclearandconcisestatementofthelineofactionchosen
byacommanderinordertoaccomplishhismission—describeshowthecommandersees the
actions of each of his units fitting together to accomplish themission

ContingencyPlanning-isaforwardplanningprocessinastateofuncertainty,inwhichscenarios
andobjectivesareagreed,managerialandtechnicalactionsdefined,andpotentialresponse
systemsputinplaceinordertopreventorbetterrespondtoanemergencyorcriticalsituation

Coordination-isanexchangeofinformationtoinformandintegrate,synchronize,andde-conflict
operations. Coordination is not necessarily a process of gaining approval but is most often
used for mutual exchange ofinformation

Coordination, Cooperation, Communication - known as the 3Cs in Crisis Management; the

mechanismspursuingcommongoalsneededtobeestablishedatthelowestlevels,toclose in any
gaps in any short fall of capabilities when needed and avoid turning issues, and the
inconsistenciesintheoverallcrisismanagement/emergencyoperationsandcontingencies

CourseofAction(COA)-(1)isaplanthatwouldaccomplish,orisrelatedto,theaccomplishment of
a mission; (2) is the scheme adopted to accomplish a task ormission
Crisis - a crisis or emergency is a threatening condition that requires urgent action or
response CrisisActionPlanning-isbasedoncurrenteventsandconductedintime-
sensitivesituationsandemergencies using assigned, attached, and allocated forces or units
and resources
CrisisCapabilities-capabilitytoanticipatepotentialcrisisandprepareforthem;provideaccurate
information; pre-empt situations; and, if this fails, provide timely response; and determine
long-termsolutions
Crisis Management - involves plans and institutional arrangement to engage and guide the
efforts of government, non-government, voluntary and private agencies in comprehensive
and coordinated ways to respond to the entire spectrum of crisis needs

Crisis Management Council - is a governing body that takes decisive actions to resolve
crisis or emergency. It is primarily concerned with the formulation of crisis management
policies,
integrationandorchestrationofgovernmentandpubliceffortstowardsthecontrolofcrisis

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

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

For Pre-crisis, consider the following: dissemination of operational responsibility; program

and response priorities; crisis management organizations (teams, mandate, participants,
roles, designated backups, team leaders); operational policies; application of principles of
crisis 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; documentation
of event during the crisis; tools to support teams and in-crisis processes; process during
the crisis (threat assessment until the resolution of the crisis); and crisis command center
operations (including Risk Communication utilizing external media stakeholders)

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

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

Disaster - a serious disruption of the functioning of a community or society involving

widespread
human,material,economicorenvironmentallossesandimpacts,whichexceedstheability of the
affected community or society to cope using its ownresources

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

Documentation - a record of contingency, emergency or crisis management plans,

equipment maintenance, skills training as well as risk and vulnerability assessment for
review and
futurereference;studiesofsuccessfulsustainablecrisisandrecoveryeffortsfocusonthree broad
approaches -- local empowerment, organization and leadership, and planning for
sustainability
Drivers - are variables that influence or propel an event’s occurrence

Emergency Planning - is decision-making prior to an actual crisis or disaster including the

consideration of resources required to manage and resolve the event. The plan must also
include the necessary steps during and after the crisis is resolved

EmergingorWeakSignals-eitherinfluencetheenfoldmentofoneunderlyingprocessoranother,
or be a symptom of this evolution. It also signifies the appearance of newprocesses

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

Exercises - exercises must be done constantly to test the capabilities of equipment and the
personnel familiarization of its use. These include interfacing between or among agencies
inordertoassistindeterminingdeficienciesandneedsforadditionalorupdatedequipment or
skills enhancement, especially in the area of an integrated or inter-agencyresponse

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

Foresight - defined 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 is
forecastingplusinsight,requiringdeepunderstandingofaparticularsubject(Kousa,2010). It is a
systematic, participatory, future-intelligence-gathering and medium-to-long-term vision-
buildingprocessaimedatpresent-daydecisionsandmobilizingjointactions(Lavoix, 2010)

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

Gap Analysis - a technique for determining the steps to be taken in moving from a current
state to a desired future-state; also called need-gap analysis, needs analysis, and needs
assessment.Gapanalysisconsistsof(1)listingofcharacteristicfactors(suchasattributes,
competencies, performance levels) of the present situation (“what is”); (2) cross listing
factorsrequiredtoachievethefutureobjectives(“whatshouldbe”);andthen(3)highlighting the
gaps that exist and need to befilled

GrowthStage-istheperiodwhenthesystemimportsmaterialandenergytoenableittosurvive
andmeetgrowthneeds/goals.Eachstageofgrowthismarkedbyabeginningandanend- point
HardTarget-onewhichisguardedorhasconsiderablesecurity;thismeansthataterroristattack
runs the risk of being intercepted often with potentially lethal force. Examples of ‘Hard’
targetswouldincludemilitarybases,andpoliticalorganizationsandhighrankingpoliticians and
heads of state such asPresidents

Hazards - defined as dangers and are widely used in the case of natural dangers; Hazard
is a potentially 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, and
equipment, integrated into a common organizational structure designed to improve
emergency response operations of all types and complexities

Incident Commander - is the single person who commands the incident response and is
the decision-making final authority on theground

Inhibitors - are variables that have negatingeffect

Inter-agency Contingency Planning Process - is a procedure in the formulation of a

contingency
planinvolvingmorethanonedepartment,bureausorunitsoftheexecutivebranchandother
stakeholders. An inter-agency contingency plan (IACP) includes three essential elements:
Situation Awareness, Strategy, Command andControl

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

Interoperability-theabilityofsystems,units,orforcestoprovideservicestoandacceptservices
from other systems, units, or forces and to use the services so exchanged to enable them
to operate effectivelytogether

Leadership - a Crisis Manager, a person who has the ability to direct a team towards the
achievement of a specific goal within a timeframe using available resources, to gather
information, to establish priorities, and to define crisis management plans

LocalDisasterRiskReductionManagementFund(LDRRMF)-notlessthanfivepercent(5%)of
the estimated revenue from regular sources shall be set aside as the LDRRMF to support
disaster risk management activities such as, but not limited to, pre-disaster preparedness
programs including training, purchasing life-saving rescue equipment, supplies and
medicines, for post-disaster activities, and for the payment of premiums on calamity
insurance. Of this amount, thirty percent (30%) shall be allocated as the Quick Response
Fund(QRF)orstand-byfundforreliefandrecoveryprogramssothatthesituationandliving
conditionsofpeopleincommunitiesorareasstrickenbydisasters,calamities,epidemics,or
complex emergencies may be normalized as quickly aspossible

Loss and Damage Control Management - preventing or controlling incidents by protecting

the overall safety of people, equipment, material and the environment

Mass Casualty - any large number of casualties produced in a relatively short period of
time, usuallyastheresultofasingleincidentsuchasamilitaryaircraftaccident,hurricane,flood,
earthquake, or armed attack that exceeds local logistical supportcapabilities

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
clearly indicatetheactiontobetakenandthereasontherefore.Itusuallycontainstheelementsof
who, what, when, and where, and the reason therefore, but seldom specifieshow
Mob Rule - characterized by anarchy/chaos, blatant violation of law due to breakdown of
the administration; 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,

using
FuturesResearchand/orHorizonScanningmethodologies(refertoSituationAwareness)to
meetdesiredlevelofcapability,sothatthelong-termdevelopmentprojectscanbeproperly
scheduled andfunded

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

of the incident

Opportunities - a chance or opening offered by circumstances

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

superior to a subordinate

Organization - a clear and responsive structure that supports a hierarchy which is neither
too unstructuredthatitfailstosupportthe3CssystemofCrisisManagement,ortoorigidthatit
disables stakeholders from responding atall

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

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

Policy - describes the intention of the government and provides the principles that govern
the actiontowardscertainends.Inthecontextofcrisismanagement,policydirectsandbecomes
the consideration from where responses to crises or disasters arederived

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

Risk Analysis - organized ways to identify and evaluate the threat or hazardous conditions,
and to
take actions to eliminate, reduce or control the risks posed by such conditions; risk
analysis
approachcanidentifytherequisiteresponseactivities,andalogicallyorderedsequencefor their
implementation; generally accepted to consist of risk assessment, risk management, and
riskcommunications

RiskAssessment-evaluationofarecognizeddangerousconditiontodeterminetheriskorthreat
they present; identify the dangers it may pose to people or equipment (lower risk, serious
injury/damage, or death/destruction); See also loss and damage controlmanagement
Risk Communication - the communication of clear, accurate and understandable
information on the risks to the public; Essential for informing the public of preventive
measures that are available to minimize the risk of exposure in a clear and rapid manner

Risk Management - the process of identifying, assessing and controlling risks arising from
operationalfactors,andmakingdecisionsthatbalanceriskcostwithbenefits;encompasses all
those activities that are required to reach and implement decisions on risk reduction or
elimination.Onceariskhasbeenidentifiedandcharacterized,aninformeddecisioncanbe
madeastowhatcontrolmeasurescanbeapplied,ifany,toreducetheriskoreliminatethe
hazard.Usually,controlmeasuresinvolvereducingtheprobabilityofoccurrenceorseverity of
anincident

RiskManagementAndAcceptableRisks-allactivitiesthatarerequiredtoreachandimplement
decisions on risk reduction or elimination; an informed decision can be made as to what
control measures can be applied, if any, to reduce the risk or eliminate the hazard. Usually,
controlmeasuresinvolvereducingtheprobabilityofoccurrenceortheseverityofanincident

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

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 flags held one in each hand

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

SoftTarget-onewhichhaslittleornomilitaryprotectionorsecurityandhenceisaneasyoption
foraterroristattack.Thisincludescommercialshoppingcentres,powerstations,andleisure
facilities such as football grounds and sportsstadiums

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

Stakeholders’ Relationship - fostering stakeholders’ relationship achieves a

comprehensive
integrationofcrisismanagementplanningamongcommunities,people’sorganizations,and civil
society organizations (CSOs), and between the local and national policy making and
operationssystems
Standing Operating Procedures (SOP) - are routine duties or recurring actions not needing
the commander’s involvement aimed at enhancing effectiveness and flexibility

Sustainability - a high level of capability for an extended period of time; capabilities can
only be sustainedthroughplanningattheshort,mediumandlong-
terms,skillsenhancements,and equipmentprocurement

Target hardening - target hardening is the use of strategies to make it harder for a crime to
be committed and reduces the gains of crime. Target hardening increases the efforts that
offenders must expend in the commission of a crime and is the most established approach
tocrimeprevention.Itisdirectedatdenyingorlimitingaccesstoacrimetargetthroughthe
useofphysicalbarrierssuchasfences,gates,locks,electronicalarmsandsecuritypatrols

Task-thespecificactivitytobeperformedbytheunitwhileconductingaformoftacticaloperation or
a choice of man oeuvre. It is the minimum essential effects to accomplish thepurpose

Threat - an indication of something undesirable coming; a person or thing as a likely cause

of harm; refers to people, phenomena, situations and trends in the environment that could
adversely affect the welfare and well-being of the people

Threat Analysis - a multi-disciplinary activity, with inputs from a range of stakeholders;

aims to identify the kind of threat, the potential perpetrators, the means that may be used
and the circumstances under which they may be used

Training-aimstoenhancespecificagenciestaskedforCrisisResponse;comprisedofindividual
and 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 the
stakeholders

Triage-theevaluationandclassificationofcasualtiesforpurposesoftreatmentandevacuation. 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 to
assure medical care of the greatest benefit to the largestnumber

TTP’s (Tactics, Techniques and Procedures)

Tactics–theartandscienceofemployingavailablemeanstowinbattlesandengagements
Techniques – the methods used by troops and/or commanders to perform assigned
missionsandfunctions,specifically,themethodofemployingequipmentandpersonnel
Procedures – the standard and detailed courses of action that describe how to perform
atask
Turning Point - the point at which a very significant change occurs; a decisive moment
VolunteerServiceOrganizations-
alocalorforeigngroupthatrecruits,trains,deploysandsupportsvolunteerworkerstoprogramsan
dprojectsimplementedbythemorbyotherorganizationsoranygroupthatprovidesservicesandre
sources,includingbutnotlimitedto,
information,capabilitybuilding,advocacyandnetworkingfortheattainmentofthecommon good

susceptible to the damaging effects of a hazard; is a set of conditions resulting from

physical,social,economicandenvironmentalfactorswhichincreasesusceptibilitytolosses from
impact ofhazards

VulnerabilityAnalysis-identifiesthelevelofthreatthatexists,giventhepotentialvulnerabilityof
thecommunityorareaconcerned;identificationofpotentialscenariosaswellasweaknesses in
the system that may come into play for an incident toescalate

WeakSignals-arephenomena,trends,issues,factors,orforcesthatmayinitiallyhavenegligible
impact but are too important to be totallyignored

Wildcards - are low-probability, high-impact events that can drastically alter situations and
assumptions, and catch everyone by surprise should they Vulnerability - the characteristics
and circumstances of a community, system or asset that make occur.
INTRODUCTION
The2009UnitedNationsInternationalStrategyforDisasterReduction(UNISDR)defines crisis
or emergency as a threatening condition that requires urgentaction.
A single crisis may spawn another crisis elsewhere, or several crises could happen in
differentplacesatthesametime.Acomplexemergencycouldalsohappenwhere“thecauseof
emergency as well as the assistance to the afflicted is complicated by intense level of
political considerations” (Republic Act 10121 or Philippine Disaster Reduction and
ManagementAct).
The National Security Policy recognizes the crises’ adverse effects to society and the
environment, to wit: “crises and disasters are being confronted every year which
significantly deplete scarce government financial and material resources, including the
interruption of critical
deliveryofbasicservices.”Worse,mishandlingofcrisismayevenleadtodisasterorlossoflives.
However, crises may not always “go down” towards “deterioration” or “disintegration”
butcouldalso“goup”towardsresolution,oftentemporary,

And/orhigherordertransformationas shown in the followingfigure:

Crisis Managers are responsible for the entire spectrum. Crisis planners are particularly
responsible for activities before the turning point so that instead of “deterioration” the
institution rises up and turns the crisis into an opportunity Incident Commanders, on the
other hand, are responsibleforevents/activitiespertainingtoand/orleadingtodeterioration/
disintegration.Crisis Managers and Planners, and Incident Commanders all work towards
resolution of and recovery from crisis.

Managing, resolving and even turning crisis into opportunity was ably demonstrated by
GeneralRoyA.Cimatu(Ret.)andtheAmbassadorsofthePhilippineEmbassyintheMiddleEast
when they placed “out of harm’s way” the millions of Overseas Filipino Workers (OFWs) in
the Middle East during the war between the US and Iraq in 2002. Their commitment,
preparedness and dedication resulted in zero casualties among OFWs, in having other
countries’ embassies
relyingonthePhilippines’contingencyplanfortheprotectionoftheircountrymen,andinbecoming
instrumental for the restoration of the Kuwaitigovernment.
Government response efforts to prevent or mitigate the effects of crisis are guided by
ArticleII,Section4and5oftheConstitution,whichstatesthattheprimedutyoftheGovernment is to
serve and protect the people and that it is essential to maintain peace and order, protect
the life, liberty and property, and promote the general welfare of the people. The objective
of our
overallcrisismanagementeffortisembodiedinthePreambleoftheConstitution.Publicleaders,
therefore, have a special responsibility to safeguard society from adverse consequences
of crises. And since crises almost always emerge and occur within a specific locality,
effective crisis management, thus, begins with the lowest politicaljurisdiction.
Crises or emergencies take several forms and have varying extent. The Core Manual is
designed to address human-induced crises through a preventive, inter-agency approach.
This manual recognizes that threats, hazards, vulnerabilities, and risks in the 21st century
security environment are interconnected; with one crisis resulting into another crisis of
varying
proportions.Thus,anagency/department/unitmayneedtoconsiderworkingwithotheragencies
to effectively detect and manage crises and its consequences. Effective inter-agency
approach to detecting and managing crisis, however, poses several challenges, one of
which is going beyond our individual and organizational biases. Having a uniform way of
addressing our roles
andfunctions,andprocessesandconceptsincrisismanagement,shouldhelpusgobeyondour
‘silos.’ThisCoreManual,withitssixchapters,aimstoharmonizeallcrisismanagementfunctions
of government agencies/departments and stakeholders toward thinking and moving
coherently and strategically over any type ofcrisis.

Chapter1 discusses the prescribed CrisisManagementOrganizations.Itstartedwiththe Crisis

Management Committee and the Incident Command System and the levels of authority,
responsibility and accountability of the two organizations. The National level crisis
management organizations and their functions, focusing on human induced incidents, are
identified. Local level crisis management organizations from the regional to the Barangay
were also recognized. In order to understand when to elevate a crisis level, a crisis’s
collation protocols established.

Chapter2discussesdetectingcrisisthroughSituationAwareness(SA)atthestrategic,
operational and tactical levels. At the strategic level, SA is developing foresight of
emerging threats, risks and crises, from primarily scanning the environment and conveying
warnings to decision makers. At the operational and tactical levels, SA is analyzing the
identified threat and the operating environment so that appropriate response efforts are
known and undertaken.

Chapter3 talks about undertaking responses to emerging crises: policy formulation and
inter-agency contingency planning—and during crisis—crisis action was planning.

Chapter 4 discusses enhancing and building capabilities in the long, medium and short
terms. A strong and effective capability can prevent and/or limit the damage of a crisis or
disaster. These include: thorough assessment on leadership; people;
coordination/cooperation/ communication; organizational structure; sustainability; training;
exercises; equipment; and documentation.
Chapter 5 entitled Applying command and control in crisis management covers the
principles on command and control system, communication system, computer drives and
informationsystem.

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

efforts.Thischapterdescribesactionsandproceduresaimedtoassistpolicyanddecisionmakers
in improving or refining crisis response efforts
KEY PRINCIPLES IN CRISIS MANAGEMENT
The key principles in crisis management are rooted in the1987 Constitution, our cultures
and values, and the best practices that were honed by years of governance. These
principles also recognize that our country, being an archipelago, shaped the differences
not only of the physical environment but also of the people residing in them. These
eight(8) key principles are:
Whole-of-nation approach;
Strengthened inter-agency collaboration;
Efficient Situation Awareness;
Tiered response to incidents;
Adaptable operational capabilities;
Unity of effort through Unity of Command;
Readiness to act; and
Intensified public information campaign.
A. Whole-of-Nation Approach(WONA)
The whole of nation approach is having leaders at all levels communicating and engaging
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
of crisis. Stakeholders’ participation is critical in order to establish a sense of ownership for
response actions. 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 specific mandates and limited resources. Each agency/
department would thus need the support of other agencies/departments to be effective in
addressing complex and interconnected threats in the 21st century. In order to be
successful, agencies/departments must collaborate with other agencies in detecting and
simultaneously addressing all aspects of a crisis - diplomatic, political, military,
humanitarian, economic, and social.

Thegoalsofastrengthenedinter-agencycoordinationarecomprehensive:gaincomplete
situation awareness; formulate integrated government policy guidance; make agency
planning activities transparent to other agencies; increase individual accountability for
implementation of
assignedagencyresponsibilities;andanticipateandkeeppacewitheventsduringoperations.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. Efficient Situation Awareness

The importance of an efficient Situation Awareness in the 21st century environment should
be emphasized prior to adopting measures to prevent and prepare for emerging and
immediate threats and crises. Efficient situation awareness detects threats and crises long
before it occurs; analyzes the root causes; and effectively conveys warnings, providing
enough lead time to prepare for wide ranging scenarios.

D. Tiered Response to Incidents

Crises essentially begin and end locally. Local government units must therefore be capable
and effective in managing crisis. Crises may require unified response from local
government units and other stakeholders, or higher levels of governance. National level
organizations should recognize this and should be ready to provide resources or
capabilities to support and sustain the responses and initial recovery. National level
organization canal so hold command over any crisis response effort, if necessary. This
conforms to the responsibility and power given to the President by the Constitution.
However, it is imperative that all levels are able to prevent and mitigate the occurrence of
crisis and anticipate required resources.

E. Adaptable Operational Capabilities

As incidents change in size, scope and complexity, the response should adapt to meet
requirements. Therefore, crisis management organizations at all levels should be
organized with capabilities for diverse operations. Government agencies must be ready to
execute graduated measures to a particular incident, and as needs increase and change,
responders should remain alert and adaptable. Similarly, the overall response should be
flexible as it transitions from response effort to recovery.

F. Unity of Effort through Unity of Command

Effective unified command is indispensable to response activities and requires a clear
understanding of the roles and responsibilities of participating organizations. Success
requires unity of effort, which respects the chain of command of each participating
organization, overcoming organizational biases, while harnessing seamless coordination
across jurisdictions in support of common objectives.

Unity of command is accomplished through the different levels of Crisis Management

Committee 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 any crisis. Chapter 6 discusses in detail the ICS.

G. Readiness to Act
Effective response to crisis requires readiness to act balanced with an understanding of
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.
Readiness to act or the willingness to do something if and when needed should be
encouraged among communities. Readiness to act is ingrained among First Responders
and is enhanced through training and planning. Readiness to act may mean readily taking
command or being responsible for establishing priorities for the safety of the public and
other responders, and for ensuring that adequate safety measures are in place.

H. Effective Public Information Campaign

Thegovernmentmustpursueaneffectivepublicinformationcampaign.Thepublicmust be
informed of the nature of the threat and its effects, and of government actions that prevent
the occurrence of crisis resulting from these threats. Well-developed public information,
education strategies, and communication plans help ensure that lifesaving measures,
evacuation routes, threat and alert systems and other public safety information are
coordinated and communicated to numerous and diverse audiences in a consistent,
accessible, and timely manner.

An effective public information campaign against an impending or current crisis also

ensures everyone’s support. This manual espouses a comprehensive and
multidimensional approach in anticipating risks and scenarios, and preventing or managing
crisis. Effective crisis management necessitates continuous participation from a wide
variety of stakeholders in order to guarantee the employment of as much viewpoints and
core competencies as possible. An effective public information campaign is crucial to
achieving this.
Incompellingsituationswherethegovernmentisconfrontedwiththeabsenceofstatutes/ policies
to address serious and potentially devastating emergencies and crises, the President is
vested with the authority or responsibility to employ his/her constitutional powers in
protecting the State and the people, and maintain peace and order in the country or any
part of it, within a prescribed period.
 MODULE 1
CRISIS MANAGEMENT ORGANIZATIONS

DURATION: 6 hours (2 weeks discussion)

INTRODUCTION:

Crisis management organizations determine the levels of authority, responsibility and

accountability. This manual identifies three characteristics of crisis management that are
significant in establishing crisis management organizations. First, the amount of time
available for deliberation is comparatively short. Therefore, there must be well-established
procedures for producing timely direction and guidelines. A day to day coordination among
agencies could accomplish this. Second, decisions concerning the response to a crisis
must not only be
coordinatedatthenationallevel,butalsocoordinatedandimplementedinanintegratedmanner at
the local levels (regional, provincial, municipal and barangay or in cases involving OFWs,
with the Ambassadors). Consequently, the national level inter-agency organizations must
not merely decide on policy direction, but also carry out initial planning for the
implementation of
thosedecisions.Third,crisisofteninvolvegovernmentagenciesandotherstakeholdersthatare
notnormallypartytothenationalsecuritypolicy-makingstructure.Anycrisisproceduremustnot
only include these agencies and stakeholders, but must also ensure that their perspectives
are adequately integrated into the overall governmentresponse.
MODULE TOPICS:
Crisis Management Committee
Incident Command System
Working Synergies
National Level Crisis Management Committees
Local Level Crisis Management Committees
Crisis Management Organizations Abroad
Crisis Escalation Protocol

LEARNING OBJECTIVES:
At the end of the unit, the students should be able to:

1. Understand the objectives of the crisis management organization.

2. Be familiar with the three levels of authority.
3. Define the three (3) modules in Incident Command System (ICS).
4. The role of Crisis Management Committee (CMC).
5. The functions of Public Information Officer (PIO).

PRE-TEST:

What is the significance of Dispute Resolution and Crisis Management?

Lesson 1-1 The Crisis Management Committee (CMC)

TheCMCisagoverningbodythattakesdecisiveactionstoresolvecrisisoremergency. It is
primarily concerned with the formulation of crisis management policies, integration and
orchestration of government and public efforts towards the control of crisis orincidents.
MembersoftheCMCarebothelectedandappointedpublicofficialswhohaveaspecial
responsibility to safeguard society from the adverse consequences of crisis. They are thus
concerned with the entire crisisspectrum.
The CMC has the five (5) critical tasks of: sense making, decision making, meaning
making, terminating, and learning. Sense making may be considered as the classical
assessment step in decision making. Decision making is both the act of coming to a
decision as the implementation of that decision. Meaning making refers to crisis
management as a political communication. Terminating a crisis is only possible if the
committee, through its Chairperson,
correctlyhandlestheaccountabilityquestion.Learningreferstotheactuallearningfromacrisis;
itislimitedbutitshouldbenotedthatacrisisoftenopensawindowofopportunityforreform–for
better or forworse.
Ideally,aCMCmustcompriseofaChairpersonandPoint-Personsformedical,legal, logistics,
community relations, public safety, and social services, as well as technical advisers as
needed. Members of the CMC shall establish procedures for producing timely direction
and guideline, coordinate and implement responses to crisis in an integrated manner from
national to local levels (in cases involving OFWs, with the Ambassadors), ensure that the
perspective of government agencies and other stakeholders are integrated into the overall
government response. Other functions of the CMCsare:
a. Provideandmobilizeavailableresourcesthroughanestablishedinter-agencyresource
sharingprotocol.
b. Coordinate inter-agency crisis managementefforts;
c. Ensurethatoperationaldemandsduringcrisisaremetandallactionsarecoordinated and
complementary;and
d. Establishanaccessiblecommunicationlinessothatreliableandtimelyinformationare
received and disseminated to appropriatelevels.

OncetheCMCisactivated,theyshallnowperformtheirrolesandfunctionsinaccordance to the
authority and responsibility bestowed upon them. They shall be accountable not only to
proper authority but also to the people. The following figure illustrates the ideal
composition of a CMC at alllevels:
Figure 1-1 Ideal Composition of a Crisis Management Committee at Any Level
1-1.1TheC,CMChasaspecialresponsibilitytosafeguardsocietyfromtheadverseconsequences
ofcrisis.ThisentailsaccomplishingtasksunderPredict,Prevent,Prepare,PerformandPost-
ActionandAssessment.Inthisregard,theC,CMCshalldesignateaspecificofficetoundertake or
monitor crisis management efforts (i.e. The Disaster Risk Reduction Management Office
may
bedesignatedtomonitorcrisismanagementefforts).Thefollowingaretheresponsibilitiesofthe
C,CMC vis-à-vis the components of crisismanagement:
CM Component Formulates policy and contingency plan, based on worst
case scenarios, which include an appropriate rules of
engagement
Issues decisions and and guidance to the IC including the Rules
Predict strategiccommunicationplan,amongothers,inrelationtoawarni
of Engagement (for Media, Incident Commanders, Table
ng issued on an Public,
Crowd/External emerging crisis and
etc.).The monitors the
ICshall: 1
preparations of the agency/department or units to ensure
effectiveness in preventing and mitigating the effects of
ReportdirectlytotheChairpersonoftheCMCforguidanceand
acrisis.
instructions.
Issue Warning Order to available forces/units within the ICS.
When
Request appropriate,
the CMC for crafts an operational
additional manual based on
forces whennecessary.
Prevent
the agency/department or unit’s contingency plan prepared
Formulateatentativeoperationplan(SeeFigure3-3.2).Review
in accordance
contingency plan, withincident
concepts and processes
action defined
plans and other in the
plans or
CoreManual.
manuals related to the incident while formulating a tentative
plan.
Ensure the participation
Initiate movement and assistance
of forces/units of appropriate
which includes
Exercise
agencies/ general supervision over the actions of the Incident
establishment of Incident Command Post, Staging Areas and
Commander.
departmentsduringinter-agency/departmentpolicyformulation
Bases, and Media Centers,etc.
and
Conductcontingencyplanning
inspection on the area of operation. At this point the
Provides expert advice to the next higher CMC or to the
IC may recommend to the C,CMC whether the situation
President
The and theEXECOM/NCMC.
inter-agency/department Contingency
needs to be elevated or he may request forPlan will units
special identify
and define the roles of each
needed to accomplish theobjective. agency/department and
Informs
establish the Department and of Foreign Affairs (DFA) if
Adjust thecommand control
tentative operational duringcrisis.
plan ifnecessary.
incidentinvolves foreign nationals (whether as offender/s
Brief and recommend the best Course of Action (COA) to the
orvictim/s).
Encourages subordinate offices/agencies/departments/units
C,CMC.
within
If time the offices/agency/department/units
permits, to understand
conduct rehearsal on the forces/units in and
TheDFAshallensurethatthePhilippinegovernmentshallactin
internalize their roles, both in the intra-agency/department
accordance to the COA selected by theC,CMC.
accordancewithexistingmultilateralandbilateralunderstanding
and inter-agency/ department
Implements and executes planprocess,
ofaction.in addressing
or agreements.
emerging and In the absence
current threatsor of such agreements, it shall
crises.
Ensures compliance of instructions down to the lowestlevel.
ensure that the Philippine government maintains close
Prepare Aftertheformulationofplans,undertakeormonitorsother“Prepar
contact
e”
Designates a Public Information Officer (PIO) who shall
andcoordinationwiththeforeigngovernmentwhosenationalor
activitiessuchasorganizing,training,equipping,exercisingand
undertake the following functions:
property isinvolved.
evaluating/improving. This includes regular conduct of
The DFA shall also monitor the impact of crisis on
simulation exercises to test and evaluate contingencyplans. to
CoordinateswiththeHead/sCommunicationGroupwithregard
thecountry’s diplomatic relations and international image and
strategic communication (STRATCOM) plan and existing
implement measures or recommend actions to address
Systematically undertakes capability building and
protocols on crisismanagement.
issues that may arise.
enhancement,
Reviews strategic such as resource identification/mapping
communication plan and ensures thatand
The DFA, as needed, shall implement measures to generate
allocatingfunds.
protocols arefollowed.
international support for thePhilippines.
Perform Shall receive information from the designated IC in relation to
IdentifiestheappropriateContingencyPlanthatwillbeimplement
theincident.
ed in anticipation of an emerging or currentthreat.
Be prepared to receive guidance from higherauthorities.
SeeksclearancefromC,CMCpriortothereleaseofinformation to
Post Action and In coordination with the Incident Commander, relinquishes
thepublic/media.
IftheemergingorcurrentthreatwasnotaddressedbytheCONPL
Assessment responsibility to appropriateagency.
AN which resulted to an incident developing into acrisis:
Undertake or monitor post actionactivities.
Coordinates with higher level authority or other agencies,
SystematicallyprovidesPostActionandAssessmentReportstot
whether the
Activate localCrisis
or international,
Management forCommittee
support, ifnecessary.
and initially
he next higher CMC or theEXECOM/NCMC.
conducts all-source situation awareness on theincident.
Allocates and dispatches resources to the
IncidentCommander.
Declarethelevelofcrisis,dependingonthesituationandthe
prevailing procedures of the concerned agency/department
Select and, if possible, affix signature on the selectedCOA.
orunit.

Activate the Incident Command System (ICS) and calls on

the pre-designated Incident Commander(IC).
LESSON 1- 2 Incident Command System (ICS)
The ICS is a set of personnel, policies, procedures, facilities, and equipment, integrated
into a common organizational structure designed to improve emergency response
operations of all types and complexities. It is based upon a flexible, scalable response
organization providing a common framework within which people can work together
effectively, since these people may 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 for miscommunication on suchincidents.
ICSincludesprocedurestoselectandformtemporarymanagementhierarchiestocontrol funds,
personnel, facilities, equipment, and communications. Personnel are selected according to
standard rules previously sanctioned by legitimate authorities. ICS is a system designed to
be used or applied from the time an incident occurs until the requirement for management
and operations no longerexist.
ICS is interdisciplinary and organizationally flexible to meet the following management
challenges:
Meetstheneedsofajurisdictiontocopewithincidentsofanykindorcomplexity(i.e. it expands or
contracts asneeded)
Allows personnel from a wide variety of agencies to meld rapidly into a common
management structure with commonterminology
Provide logistical and administrative support to operationalstaff
Be cost effective by avoiding duplication of efforts and continuingoverhead
Provide a unified, centrally authorized, legitimate emergencyorganization
ForanoverviewofthedeploymentoftheICSatthesceneofincident,refertoAnnexC.
Likewise,adetaileddiscussionontheIncidentCommandSystemoftheNDRRMC,asapproved
by its Executive Committee for implementation through Memorandum Circular Nr. 4, s.
2012, is hereto attached as Appendix C-1 of this CoreManual.

Figure
1-2.1
ICS
Basic

Organizational Structure
The ICS organizational structure develops in a modular fashion based on the size and
complexity of the incident, as well as the specifics of the hazard environment created by
the
incident.Whenneeded,separatefunctionalelementscanbeestablished,eachofwhichmaybe
further subdivided to enhance internal organizational management and external
coordination. Responsibility for the establishment and expansion of the ICS modular
organization ultimately
restswiththeIncidentCommander,whichbasestheICSorganizationontherequirementsofthe
situation. As incident complexity increases, the organization expands from the top then
down, as functional responsibilities are delegated. Concurrently with structural expansion,
the number of management and supervisory positions expands to address the
requirements of the incident adequately.
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 is the single

person who commands the incident response, and is the final decision-making authority on
the ground. It is the Incident Commander’s role to efficiently and effectively integrate the
people and resources to contain the current crisis. She/he is a duly designated individual,
responsible for the implementation of the decision of the CMC. His/her designation, thus,
should not be made solely by virtue of his present position or assignment. He/She must
possess necessary and appropriate knowledge, skills, and ability to manage or handle
crisis. An Incident Commander canbe:
1) Single Incident Commander – is a single personcommand
2) UnifiedCommander–isapersondesignatedtocommandonlargerincidents
– usually when multiple agencies are involved; a Unified Command typically includes a
command representative from primarily involved agencies and one from that group to act
as the spokesman, though not designated as an Incident Commander. A Unified
Command acts as a single entity.
3) AreaCommander–isapersondesignatedduringmultiple-incidentsituations where he has
to provide support for Incident Commanders at separate
locations.Generally,anAreaCommanderwillbeassigned-asingleperson-
andtheAreaCommandwilloperateasalogisticalandadministrativesupport. Area Commands
usually do not include an Operationsfunction.

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

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

2) ThePlanningSectionChief–taskedwiththecollectionanddisplayofincident information,
primarily consisting of the status of all resources and overall status of the incident
3) The Finance/Administration Section Chief – tasked with tracking incident
relatedcosts,personnelrecords,requisitions,andadministratingprocurement contracts
required byLogistics

4) The Logistics Section Chief – tasked with providing all resources, services, and support
required by theincident
c. TechnicalStaff–providestechnicaladvicetotheIncidentCommanderandthey are:
1) The Safety Officer – monitors safety conditions and develops measures for assuring the
safety of all assignedpersonnel
2) ALiaison–servesastheprimarycontactforsupportingagenciesassistingat anincident
3) The Public Information Officer – serves as the conduit for information to
internalandexternalstakeholders,includingthemediaorotherorganizations seeking
information directly from the incident orevent
1-2.2 The Public Information Officer or the Spokesperson (PIO)
Toensurethataccurateinformationandaconsistentmessageisprovidedtothemediain a crisis,
there should only be one spokesperson. At times however, there may be more thanone
spokespersondesignateddependingonthetypeofinquiries,andtheneedforspecificexpertise to
respond to questions or concerns. Whatever would be the set-up and whoever would be
designated as spokesperson/s, the following must be clearly understood and applied by
them in anycrisis:
a. Functions of thePIO:
1) Provide information openly and honestly – with minimumdelay;
2) Contribute to confidence, trust, respect and esteem of the members of the CMC and of
the ICS;and
3) Promote a greater understanding of the CMC and ICS and its contribution to the overall
effort of restoring peace andorder.
b. Roles of thePIO:
1) Know the media;
2) Engage the media;
3) Tell the story – good or bad – accurately and timely.
c. Responsibilities of thePIO:
1) Ensure that all information provided to internal or external audience is accurate;
2) Take appropriate action to correct erroneous information that appears in any medium;

3) Avoidpromotional,self-servingreleasesandeventsstagedsolelyforpublicity purposes;and
4) Protectclassifiedinformationintheinterestofthesafetyofvictimsandfamily and that of
national security, including the security of one’soperation

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 role
would 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 media
attention. However, fear of potentially negative media reports is no reason to refuse
legitimate requests for information. It is important to remember that in the normal course of
affairs, the
mediaalsoprovidescoverageof“goodnews”items,andindoingso,helpstobuildthereputation of
the CMC involved, the ICS, and the whole ofgovernment.
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
commanders and responders are the first priorities in any crisis management.
Generally, as the incident develops into a critical incident or into a crisis, a PMAG shall be
organized and activated within the ICS. This is to unburden the Incident Commander from
answeringmeticulousqueriesfromthemembersofpresssothathisoperationalfocuswouldnot
be affected. It is the responsibility of the PIO of the ICS, at any level, to manage and
maintain relations with the members of the media. Initially, the PIO of the ICS, once
designated, must establish a Media Center to cater to all queries from the media or the
public. Within the Media Center, a Monitoring Unit shall be organized to process the influx
and outflow of information. On this note, the Incident Commander must issue his critical
guidance on interacting with the
mediaandmustestablishcertainprotocolsorasystem:onwhoshouldprovidethenecessary and
appropriate information; to which the information should be directed to; and how it should
be disseminated. In other words, sets of media protocol, clearly specifying the “Dos and
Don’ts” in reporting, must be in place to address specific type of crisis without necessarily
curtailing freedom ofinformation.
For security purposes, only accredited and sanctioned media practitioners and outfits shall
be tapped to cover crisis.
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 Media
CenteranditshallbecomposedofthePIOsfromthedifferentgovernmentdepartment/agencies
involved in the management of the current crisis. Thus, from a mere Media Center, it shall
now becomeaPMAG,whichhastwo(2)sections:thePublicRelationsSection,whichaddresses
information that comes to and from the general public aside from media; and the Media
Relations Section, which is in direct contact with the quad-media personalities. The ICS
PIO, aside from being the Command (Technical) Staff of the Incident Commander, heads
the
PMAG.HemayactastheoverallSpokespersonorhemaydesignatesomebodyfromamongthe
Media Relations Sectionmembers.
1-2.4 National Government Media Platforms
As embodied in the Memorandum Order signed by the President on 22 March 2011 with
Subject: Amending the Crisis Management Organization as Provided for in the 2000 Crisis
Management Manual, the Presidential Communications Development and Strategic
Planning Office (PCDSPO), more popularly referred to as the Communications Group, is
responsible for speaking to the public, for maintaining a constant, coordinated flow of
information to the public and the government about the emergency or crisis. It implements
the Crisis/Emergency
CommunicationPlanofthegovernment.Italsoensuresthatallothergovernmentspokespersons
of the respective departments, agencies instrumentalities or bureaus involved in
theemergency

1 Media Center is equivalent to the Joint Information Center in the international scene shall
avoid speaking to the public or media before, during and right after the emergency. It takes
responsibilityforthemessagingduringthecrisisoremergencyanditensuresthattheEXECOM,
NSC/NCMCandallothergovernmentofficialsoragentsinvolvedinthecrisisadheretotheCrisis
Communications Plan and speak in onevoice.
This group also ensures the prudent handling of information to and from the media, and
that the information disseminated will not prejudice nor hamper on-going operations or the
crisis management process. It develops an appropriate Crisis/Emergency Communications
Plan which shall be implemented and strictly adhered to by the EXECOM, NSC/NCMC
and all other government officials or agents. ANNEX D of this manual lists the media
platforms of the government should official pronouncements/statements of the
Communications Group are
made.FormoredetailsonthemandatesofthePCDSPO,pleaserefertoEONr.4seriesof2010,
Office of thePresident.
1-2.5 The On-Scene Commander
An On-Scene Commander is an individual in the vicinity of an incident, who temporarily
assumescommandandinstitutesimmediateemergencyprocedures,suchastheisolationofthe
incidentfromtherestoftheenvironment.He/Shemusthavethepropertrainingandtheauthority to
respond. Technically, he/she is part of the second type of First Responders. He/she has
the responsibility of applying necessary actions to avoid “greater evil or damage” that may
arise out of an existing or developing crisis. In doing so, he/she has to exercise “wise
judgment” in the performance of duties and responsibilities. His/her role ends when an
Incident Commander has been designated, unless he/she is also selected by the latter to
be part of theICS.
1-2.6 The First Responder/s
There are two types of First Responders: The first refers to those who are on the scene of
the incident (anybody who is coincidentally on the scene); and the second refers to
certified
responderswhoareonstandbyforsuchoccurrence(asmandated).Thefirstresponderreferred to
by this manual is of the second type. The First Responder carries out the immediate and
timely response needed in addressing an incident. The First Responder’s performance
covers that point in time when the level of incident shifts either to a higher level or towards
elimination of crisis. The First Responder also secures the scene of incident and conveys
the appropriate
communicationtorespectivechannels,primarily,toanIncidentCommanderortotheLocalChief
Executive. Thus, the response of the First Responder is crucial in crisismanagement.
LESSON 1-3 Working Synergies
CrisismanagementresideswiththeExecutivelevelinanorganization.Itnormallyhasno
directpower,butfunctionsasanadviserorcoordinatortoensurethatallpartsofanorganization are
focused on the common goal. Effective crisis management relies on a thorough integration
ofeffortsatalllevelsoftheorganization.Moreover,theremustbeclearunderstandingthatcrisis
must be addressed at the lowest political jurisdiction and that higher level crisis
management organizations must be ready to provide assistance and additional resources
whenneeded.
This section aims to discuss working synergy as a delineation of roles and responsibilities
between crisis management committee members and the Incident Commanders so that
respective tasks and purposes of each element would be clearly understood.
OneoftheprimaryresponsibilitiesofthelocalCMCistoorganizetheIncidentCommand System
(ICS) and to designate its Incident Commander (IC) in accordance to the nature of the
crisis. The designated IC shall be reporting directly to the Chairperson, CMC for guidance
and instructions. However, on complex situations wherein the need to organize different
ICSs is paramount, CMC has the prerogative to create several ICSs with different ICs that
addresses specific types of crisis simultaneously. At this juncture, either an Area (Support)
Commander or a Unified Commander within the ICS shall be designated to synchronize
and to coordinate all efforts of subordinate commanders. TheArea (Support) Commander
or the Unified Commander shall be reporting directly to the Chairperson of the local CMC
for guidance and instructions, or for additional supportrequirements.
It is the joint responsibility of the local CMC and the next higher level CMC to determine
the appropriate level of CMC that would best address the crisis. The decision to elevate
crisis response should be based on their continuous and thorough assessment of the
situation, taking
intoconsiderationtheseverityofthenatureofthecrisis,thecapabilityofavailableforcesorunits
addressing the crisis and the availability ofresources.
The CMC shall not distract or disrupt the operations of the ICS. Its primary functions are:
providing for the requirements of theICS
coordinating and facilitating support from higher authority;and
SupervisingtheexecutionoftheplanofactionbythemembersoftheICSonceithas been
established andoperationalized.
TheCMCshallinterveneintheoperationif:(1)actionsundertakenbytheICSarenotin accordance
to those approved by the CMC; or (2) the CMC, during their assessment, finds that
capabilitiesofcommittedforcesorunitsinappropriateorineffective.TheCMCshallbetheoverall
responsible and accountable unit, whatever the outcome of the conduct of theoperations.
TheIncidentCommanderhastheresponsibilityofselecting,constituting,andorganizing
unitsandmembersoftheICS.Thisresponsibilityimpliestheprerogativeofchoosingwhatunitor
agency of the government or private sector should be involved in managing the crisis.
Likewise, he/she has the implied responsibility of determining additional assets necessary
to accomplish the mission.
Consideringtheimmensityofhis/herknowledgeinthedifferentoperationalconceptsand
thediversetactics,techniques,andproceduresincrisismanagement,theIChastheresponsibility
of generating options in addressing the crisis and recommending the best option to
theCMC.
When an option has been chosen and approved by the Chairperson, CMC, the IC now has
the responsibility of implementing the plan of action. Corollary to this, he/she must ensure
thatthemissionandintentsaredisseminatedandclearlyunderstoodbyallelementsoftheICS.
The IC reports directly to the Chairperson, CMC for guidance and instructions and
forpurposesofrenderingreportsontheresultsoftheoperation.To thiseffect,itishis/her
responsibility to recommend to the Chairperson, CMC whether or not the resolution of the
crisis should be elevated to a higher response level.
To further discuss the two (2) aforementioned elements, the table below delineates the
CMC’s and the Incident Commander’s authority, responsibility, and accountability.
COMMAND ELEMENTS
CMCs Incident Commander
PhilippineLaws Designationorder
Policies, guidance, intents, Operationsorders
issuances from higherlevel Decisions and guidanceof
Authority concernedCMC
Knowledge, skills and ability to
performactions
Responsibility Incident Commander’s actions, Subordinates’
omissions orfailures actions,omissions orfailures
Accountability Accountable to higher authority To the concernedCMC
and to thepeople
Table 1-3.1

LESSON 1-4 National Level Crisis Management Committees

National level crisis management committees are intra and inter-agency/department
organizations at the national level created by law, Executive Orders or Department Orders.
These organizations are created because government recognizes that a crisis has
implications to national security. This section identifies the national level crisis
management organizations and its membership, and enumerates their respective roles
and functions in crisis management.

1-4.1 The National Security Council(NSC)

TheNationalSecurityCouncil(NSC)istheprincipalforumforinter-agency/department
deliberation of national security policy issues requiring Presidential decisions. The
government
recognizesthatacrisishasimplicationstonationalsecurity;thus,policiesandcontingencyplans
are formulated and agencies/departments are organized to prevent or mitigate itseffects.
TheNSCisanadvisorybodytothePresident.TheNationalSecurityAdviser(NSA),as
DirectorGeneraloftheNationalSecurityCouncilSecretariat,ensuresthatthepoliciesformulated
by the NSC and approved by the President are effectively and efficientlyimplemented.
The function of the NSC in relation to crisis management is “to evaluate and analyze all
information, events, and incidents in terms of the risks they pose or implications upon and/
or threats to the overall security and stability of the nation, for the purpose of
recommending to the President appropriate responses thereto and/or action thereon.” In
effect, the NSC serves as the government’s National Crisis Management Committee,
addressing crises or incidents with broad implications on the ‘exercise of sovereignty,
integrity ofnational territory, maintenance of peace and order, the protection of life, liberty
and property, and the promotion of the general welfare of the people’.
National level Crisis Management Committees are structured as follows:

A. Executive Committee, National Security Council as the National Crisis Management

Committee(EXECOM/NCMC)
The EXECOM, NSC/NCMC is the highest executive policy-making body that addresses
man-madecrisisatnationallevel.Thisseniorinter-agency/departmentforumshallresolvepolicy
issuesconcerningthreatsandtheriskstheyposetothepopulace.Inanationallevelcrisis,itshall
informthePresidentofthesituationandtheinitialactionsofgovernmentagencies/departments.
ItshallalsorecommendtothePresident,asChairpersonoftheNCMC,appropriateinter-agency/
department responses to resolve the crisis. The President executes his crisis management
plan by way of issuance of policies, guidance, and intents to the EXECOM, NSC/NCMC,
who shall, in turn, execute intra-agency/department policies and plans in support of the
President’s crisis managementplans.

The EXECOM/NCMC is composed of the following:

Principal Members Secondary Members

President and/or Executive Secretaryas Secretary ofHealth

Chairperson Secretary ofFinance
Executive Secretary Secretary of Trade andIndustry
Secretary of NationalDefense Secretary of Social Welfareand
Secretary of Interior and Development
LocalGovernment Secretary of Budget andManagement
Secretary of ForeignAffairs Secretary ofEnergy
Secretary ofJustice Chairperson,OPAPP
Head(s), CommunicationsGroup Other government officials as the
National Security Adviser (Secretary President may appoint or designate
ofthe Committee) from time to time.
Table 1-4.1
Certain members of the EXECOM/NCMC are also designated as Cabinet-Officer Primarily
Responsible (C-OPR) for certain types of threats/crises/incidents.
Member as C-OPR Types of Threats/Crises/Incidents
Terrorism as defined in the Human
Security Act of2007;
Crises or emergencies in foreign countries
Executive Secretary affecting Filipino nationals (Inter-Agency/
Department Response, EO 34, s. 2011,
Creation of the Overseas Preparedness
and Response Team);and
3. Border incidents
(Inter-Agency/Department Response, EO
57, s. 2011, Creation of the National Coast
Watch Council).

Threats to national security, such as but not

limited to revolts, mutinies, insurrections,
coup d’ etats, war; and
Secretary of National Defense
Border incidents as Co-C-OPR.

Threats to peace and order (i.e. civil

Secretary of Interior and Local disturbances, violent labor strikes, riots,
Government anarchy, disorderly mass demonstrations).

Crises or emergencies involving OFWs

as Co-COPR (Intra-Agency/Department
Secretary of Foreign Affairs Response); and

Border incidents as Co-C-OPR.

Secretary of Health Threats to public health.

Secretaries of Finance and Trade and Crises or emergencies involving the

Industry economy.

Secretary of Energy Threats to energy and oil supply

National Security Adviser Secretariat to the NSC and

EXECOM/NCMC.

Table 1-4.2

In cases of crises or emergencies not defined herein, the Chairperson of the EXECOM/
NCMC shall designate the Secretary of the Department concerned to serve as C-OPR for
that
crisisoremergencysituation.Theexistingdepartmentalmanualsorproceduresinmanagingthe
crisis or emergency shallapply.
The Cabinet Officer Primarily Responsible or C-OPR plays a vital role in all the 5Ps of
crisis management. Crisis leadership has become a defining feature of contemporary
governance, both in the public and private sectors. Citizens expect governments and
public agencies/departments to make sense of what is going on and to protect them from
real or perceived threats. Effective leadership in crisis management is even more
significant with the adventof24-
hournewscoverageandtechnologicaladvances,includingrapidgrowthintheuse of social
media.

B. The Sub-Committee, National Crisis ManagementCommittee

Directly under the EXECOM/NCMC is the inter-agency/department Sub-Committee,
NCMC, with the NSA as its Chairperson. This senior sub-cabinet group is tasked to
conduct
inter-agency/departmentHorizonScanningofthePREDICTcomponentoftheCrisisManageme
nt Framework, monitor inter-agency/department collaboration to manage threats and risks,
and identifyunresolvedpolicyissuesfortheEXECOM/NCMC.TheSub-
committee,throughtheNSA, informs the EXECOM/NCMC of emerging crises, and
recommends appropriate response and
seeksstrategicguidanceinaddressingemergingcrises.TheSub-Committeeshallthencarryout
the initial planning based on the policy guidance supplied by the EXECOM/NCMC and
monitor implementation of the decisionsmade.
The members of the Sub-Committee are the following:
Undersecretaries or Assistant Secretaries of the Principal Members of the EXECOM/
NCMC
OtherUnder/AssistantSecretariesofSecondaryMembersoftheEXECOM/NCMCwho shall be
called upon whenneeded
Other Departments andBureaus
0 Director General, National Intelligence CoordinatingAgency/department
0 Chief of Staff, AFP orrepresentative
0 Chief, PNP orrepresentative
0 Chief, PCG orrepresentative
0 Director, NBI orrepresentative
Other Stakeholders

C. Anti-Terrorism Council (ATC)

TheATCwascreatedunderSection53oftheRepublicAct9372ortheHumanSecurity Act of
2007, for the proper and effective implementation of the country’s anti-terrorism policy. It
servesastheNationalCrisisManagementCommitteeincasesofanational-levelcrisisinvolving
acts of terrorism.
The ATC is composed of the following:
Chairperson: ExecutiveSecretary
Vice-Chairperson: Secretary ofJustice
Members
Secretary of ForeignAffairs
Secretary of NationalDefense
Secretary of Interior and LocalGovernment
Secretary ofFinance
Secretary of Transportation andCommunication
National SecurityAdviser
Support Agencies
National Bureau ofInvestigation
Bureau ofImmigration
Office of CivilDefense
Intelligence Service of the Armed Forces of thePhilippines
Anti-Money LaunderingCouncil
Philippine Center on TransnationalCrime
Philippine National Police Intelligence and Investigativeelements

TheProgramManagementCenter(PMC)oftheATCservesastheSupportSecretariatof
theCouncilwhentheATCisconstitutedasaNationalCrisisManagementCommitteetoaddress
crises involving act/s ofterrorism.
D. Overseas Preparedness and Response Team(OPRT)
The OPRT was created by virtue of Executive Order No. 34 dated 06 April 2011, replacing
the Presidential Middle East Preparedness Committee (PMEPC) that was created under
Executive Order Nr. 159 (s. 2002). The OPRT was set up for the purpose of addressing
crises/emergencies in foreign countries that affect Filipino nationals. It serves as the
National Crisis Management Committee for crisis involving OFWs.
The OPRT is composed of the following:
Chairperson: ExecutiveSecretary
Members:
Presidential Adviser on Overseas Filipino Workers’Concerns
Secretary of ForeignAffairs
Secretary of Labor andEmployment
Secretary of NationalDefense
Secretary ofJustice
Secretary of Interior and LocalGovernment
Secretary of Budget andManagement
The OPRT Secretariat is composed of officials from the OPRT member-agencies/
departments,whichprovideadministrativeandrelatedsupportservicestotheteam.Itisheaded
by a senior official designated by the Executive Secretary and serves as the support
secretariat of the OPRT when the latter performs the role of a National Crisis Management
Committee for crisis involving the safety ofOFWs.
E. Inter-agency Energy Contingency Committee(IECC)
As provided in Administrative Order No. 6 dated March 3, 2011, the IECC is directed to
ensurethatthenecessarypreparationsareinplaceshouldtherebeanydisruptiontothesupply of
petroleum and other energy sources in thecountry.
This committee is composed of the following:
Department of Energy:Chairperson
Department ofFinance
Department of Budget andManagement
Department ofJustice
Department of Trade andIndustry
Department ofAgriculture
Department of NationalDefense
Department of the Interior and LocalGovernment
Department of Transportation andCommunications
Department of ForeignAffairsNational Economic DevelopmentAuthority
National SecurityCouncil

F. National Coast Watch Council(NCWC)

AsprovidedinExecutiveOrderNo.57datedSeptember6,2011,theNCWCshallbethe central
inter-agency/department body which shall be in charge of formulating strategic direction
and policy guidance for the National Coast WatchSystem.

This committee is composed of the following:

Executive Secretary:Chairperson
Department of Transportation andCommunications
Department of NationalDefense
Department of ForeignAffairs
Department of Interior and LocalGovernment
Department ofJustice
Department ofEnergy
Department ofFinance
Department of Environment and NaturalResources
Department ofAgriculture
G. Crisis Management Support Secretariat (CMSS) of theONSA
TheCMSSservesasthesupportsecretariattotheEXECOM/NCMCandSecretariattothe Sub-
Committee,NCMC.ItshallmaintainadatabaseforallInter-agency/departmentContingency
Plans, After Action Reviews, Assessments, updates on Horizon Scanning methodologies,
and other relevant data for crisis management. It is also responsible for advocating inter-
agency/
departmentcollaborationandleadsinter-agency/departmenttrainingsandrehearsalstoaddress
threatsorcrises.TheCMSSlikewiseassistsconcernedstaffoftheC-OPRinvalidating,through
inter-agency/departmentsimulationexercises,theinter-agency/departmentcontingencyplans.
H. Presidential Situation Room(PSR)
The PSR serves as the National Crisis Management Operations Center for various
contingencies and crises. It is managed and operated by the Office of the National
Security Adviser through an Executive Director. It performs the following functions:

Monitors events, situations and developments that have national security implications
including those with serious diplomatic, political and peace and orderramifications;
ProvidescurrentintelligenceandcrisissupporttothePresident,theExecutiveSecretary,
theNationalSecurityAdviser,andtheSecretaryofthePresidentialManagementStaff;
Serves as the primary monitoring, coordination and communications center in Malacañang
on classifiedinformation;
Coordinates the collection, verification and evaluation of highly sensitive information
bearing on nationalsecurity;
Establishes linkages and coordinates with the various Operations Centers of civil and
security agencies ofgovernment;
Illustrated below is the organizational set-up directly responsible for crisis management at
the national level. It shall be headed/chaired by the C-OPR whether through an intra- or
inter-agency/department crisis management committee and depending on the nature or
the type of crisis. The C-OPR’s designated crisis management office/unit shall serve as
the Crisis Management Operations Center.
When a crisis escalates or when an information and/or incident demands higher-level
decision-making, the EXECOM/NCMC shall be activated upon the advice of the NSA. The
PSR becomes the National Crisis Management Operations Center. The CMSS, on the
other hand, shall serve as the support secretariat of the EXECOM/NCMC. The C-OPR
shall provide expert advice depending on the nature or the type of crisis. The chart below
is an illustration of this organizational set-up.

Figure 1-4.1 ONSA-PSR-CMSS-EXECOM for NCM Command Relationship and Degree of

Control (Intra/Inter-Agency Crisis Management)

LESSON 1-5 Local Crisis Management Committees (Regional, Provincial, City or

Municipality, and Barangay)
As embodied in EO 320 s. 1988 entitled “Reorganizing the Peace and Order Council”,
aSpecialActionCommittee/CrisisManagementCommitteeshallbeorganizedwithintheNPOC
to take decisive action in emergency situation. Same EO directs the POCs to organize at
the
regional,provincial,cityormunicipality,andbarangaylevelsasimilarcommitteetowhatisbeing
prescribed at the nationallevel.
InthecaseofMetroManila,theMetroManilaDevelopmentAuthority(MMDA)Chairperson or
whoever is designated by the President as Chairperson of the Regional POC shall serve
as Chairperson of the RegionalCMC.
The above provisions simplify efforts in the creation of a CMC at the lower level since
POCs have long been established at all levels, and therefore imply no additional cost and
time. Just like the National-level Crisis Management Organizations, Peace and Order
Councils (at all levels) are well-represented by the different government departments,
agencies, and even bureaus. These representatives may be the same people who could
form part of the local CMC when the needarises.
BothCMCsandPOCsareorganizationsofthegovernmentthathaveacommonobjective of
maintaining or restoring peace and order in society. Sizes of these organizations vary from
one level to another but roles and functions are still the same. The only difference is that
POCs’ functions cover the whole range of peace and order, while CMCs functions only
cover a specific type of situation. Hence, a CMC’s organizational structure depends on: the
type of its operation, which is relative to the nature of the threat, hazard, or risk; on
jurisdiction; and on available resources. Whatever will be the composition of said
organizations (at any level) operational capabilities will not be affected for as long as basic
roles and functions of each element remain the same.
LESSON 1-6 Crisis Management Organizations Abroad

The Crisis Management Organization abroad is guided by the “One Country-Team

Approach” from the provisions of the Omnibus Rules and Regulations Implementing the
Migrant
WorkersandOverseasFilipinosActof1995,asAmendedbyRepublicActNo.100222.Underthe
country-teamapproach,allofficers,representativesandpersonnelpostedabroad,regardlessof
theirmotheragenciesshall,onapercountrybasis,actasonecountry-teamwithamissionunder
the leadership of the ambassador. This means that during times of crisis, the Ambassador
of a particular country becomes the Chairperson, Crisis Management Committee and all
personnel
postedunderhim/herbecomemembersoftheCMC.He/sheshallcallonthedesignatedIncident
Commanderamonghisstaffs,preferablytheDefenseandArmedForcesAttaché(DAFA),when
appropriate. Further, as Chairperson CMC, he/she shall initiate crisis management efforts
as espoused by thismanual.

Inter-agency and regional crisis management efforts will be guided by the provisions of
the Executive Order 34 series of 2011 creating the Overseas Preparedness and Response
Team (OPRT). The OPRT is tasked to draw up strategies and programs and formulate
policies to appropriately respond to any crisis affecting Filipinos abroad. It is also tasked to
develop and adopt interactive operating arrangements among government
agencies/departments to effect maximum coordination. In essence, the OPRT serves as
the inter-agency Crisis Management Committee for crisis involvingOFWs.
LESSON 1-7 Crisis Escalation Protocol (Transitions)
Transitions mark the intervals between the on-going operation and the full execution of
branchesandsequels.Inthemilitary,transitionsoftenmarkthechangefromonedominanttype of
operations, such as offense, to another, such as stability. Commanders consider
transitions from the current operation to future operations early in the planning process.
Command
arrangements,forexample,oftenchange.Typically,thecommandstructureevolvestomeet
changing situations.
Changes in the strategic situation require adjusting the strength and composition of
deployed forces. When the dominant type of operation changes, the types of units
originally deployed may no longer be appropriate. As each new force prepares for
operations, the force must be tailored to meet mission requirements and environmental
constraints.
Transitions are the sequels that occur between types of operations. Commanders
anticipate and plan for them as part of any future operation. Transitions between
operations are difficult, and during execution may create unexpected opportunities for own
forces, enemies, or adversaries. Such opportunities must be recognized quickly,
developed as branches to the transition operation, and acted upon immediately. Transition
between operations may be the most difficult follow-on operation toaccomplish.
Typically, a role of responsibility can be transferred during an incident for several reasons.
First, as the incident grows, a more qualified person is needed to take over as Incident
Commander, to handle the ever-growing needs of the incident. Secondly, in reverse where
an incident reduces in size, command can be passed down to a less qualified (in terms of
level) to make available highly-qualified resources for other tasks or incidents. And
thirdly, due to jurisdictional change, when the incident moves location or area of
responsibility, or because of normal turnover of personnel due to extendedincidents.
Whatever the reason, the transfer of command process (transition) always includes a
Transfer of Command Briefing, which may be oral, written, or a combination of both that
should be attended by key members of the incoming and outgoing CMCs and ICSs.

The succeeding table shows conditions or situations in any Crisis Level so that smooth
transition of command responsibility is attained. The conditions or situations enumerated
below will dictate what particular CMC is appropriate to manage a certain crisis. In effect,
these are the trigger points in the handover of responsibilities. It is, likewise, advised that
all members of CMCs and ICSs shall familiarize themselves with the conditions or
situations that will trigger the handover of responsibilities from local to the national, as
statedbelow.
 Table
Involved CMC Conditions or Situations (Ifs and Whens) 1-7.1

Barangay/ Local security forces or law enforces and CMC are in control To
Municipal/City of the situation
Appropriate resources are available and capable at either
Municipal or Barangaylevel
Provincial Local security forces or law enforcers at the municipal/city
level are unable to resolve the crisis within theircapabilities
Barangay/Municipal/City CMC recommends elevation of the
crisis level
Situation requires employment of security forces and utilization
of resources of the provincial level organizations andbeyond
Incident affects two or more municipalities within the
sameprovince
further give a clear understanding on why a crisis should be handed over to a more
Regional Situation requires employment of security forces and
utilization of resources of the Regional level organizations
andbeyond
Upon the recommendation of the Provincial CMC or of the C-
OPR (EXECOM, NSC/NCMC) of a particularcrisis
Incident affects two or more provinces within the sameregion
Crisis involves foreign national/s, either perpetrators orvictims
Crisis affects peace process, national tourism industry, and
other majorindustries

National The crisis (issues and demands) requires major decisions of

the principal members of the EXECOM,NSC/NCMC.
The President’s decision isrequired
International commitments are atstake
Crisis entails borderissues/conflicts
National Security issues are at stake, such as food, water,
energy security, critical transportation and communication
structure, and environment arethreatened
Incident affects two or more regions within thecountry
The highest terrorist threat level involving mass casualty
attacks has beendeclared
And,upontherecommendationoftheC-
OPRofaparticularcrisisto
the EXECOM, NSC/NCMC.

appropriate CMC, the table below shows a list of available resources that a specific Crisis
Management Committee may utilize at their own discretion:
Involved CMC Available Resources
Barangay/Municipal/ Local security forces (Detachment of CAAs, Bantay-
City Bayan, AFP Companies or Teams,etc.)
Local law enforcers (Police, Tanods, SWAT,etc.)
Firestations
Volunteers
LGU’s Special Response Teams, if there isany
Provincial Army Battalion orBrigade
Police, Provincial Public Safety Companies(PPSCs)
Provincial GovernmentUnits
Provincial Special ResponseTeams
Departments’andAgencies’ProvincialOffices
Table 1-7.2
Regional ArmyDivision In aid of
AFP UnifiedCommands analysis
PNPDIPO or
Police, Regional Public Safety Battalions(RPSBs) situation
NavalDistricts
Coast GuardDistricts
Air ForceDivisions
Departments’,Agencies’andBureaus’RegionalOffices
National AFP National ManeuverUnits
PNP National ManeuverUnits
Coast Guard SpecialUnits
Government Departments, Agencies, andBureaus
Local and internationalNGOs
Specially organized, trained, and equipped responseunits
assessment, whether a crisis level is to be elevated or
downgraded,CMCsatalllevelsareadvisedtousethesucceedingmatrixtoidentifyreasonswhy
they have to relinquish responsibility over a certain crisis. The matrix is answerable by
either YES or NO, based on the table below (Table1-7.3):
Prevailing Situation: (Example): A Kidnap for Ransom Group kidnapped a US
(A brief description of diplomat in Zamboanga City and brought the victim to the
the existing situation) Province of Sulu. AFP JSOG was deployed to rescue the
victim.RegionalCMCwasactivatedandJTF“Comet”istasked
as ICS. US Embassy has issued Travel Advisory –
banning travel to Mindanao to their citizens
Levels of Crisis
Parameters I (B/M/C) II III IV
(Provincial) (Regional) (National)
Resource Utilization Yes Yes Yes Yes
Personalities Involved Yes Yes Yes Yes
(Victims and
Perpetrators)
Geopolitical Yes Yes No No
Boundaries
Diplomatic Issues Yes Yes Yes Yes
National Security Yes Yes Yes Yes
Issues
Economic/Tourism Yes Yes Yes Yes
Issues
Affected Yes Yes No No
Infrastructures

Interpreting the above example, the matrix would tell us that, although the prevailing
situation only affects the provincial level with regards to geopolitical boundaries and to a
certain
degree,onlyaffectsprovinciallevelinfrastructures,thereisaneedtoelevatethesituationtothe
highestlevel;nationallevelassetsarealreadyemployed/utilized;thevictimisaforeigndiplomat
with its attendant national security, economic and tourismimplication.

As situation shifts from one level to another, the chart below illustrates the transition of
authority, and the flow of communication:
Figure 1-7.1 Transition of Authority and Communication Flow Chart

Crisis management starts at the lowest political jurisdiction. As the incident becomes
critical,thelocalchiefexecutivebeingthechairpersonofthelocalPeaceandOrderCouncilhas
theresponsibilityofcreatingandactivatingaCrisisManagementCommitteethatwilladdressthe
existing situation. Corollary to this responsibility is the designation of an Incident
Commander. The Incident Commander, on the other hand, has the responsibility of
organizing the ICS and
henceforth,theICSshallbeplacedundertheoperationalcontroloftheCMC,andboth(CMCand
ICS)shallperformtheirrespectiverolesandfunctionsasdescribedabove.Atthispoint,theCMC is
required to render regular updates to the EXECOM, NSC/NCMC through the PSR/CMSS,
through appropriate channels. The C-OPR of a particular crisis or his duly designated
Crisis
ManagementOfficer(CMO),fortheirpart,mayproceedtotheareatoworkdirectlywiththeCMC
and ensure that necessary support is available and higher authority’s intents and
guidelines are
adheredto.Inthiscase,however,theCMCisnotunderthecommandandcontroloftheC-OPR or of
the CMO, but they may seek the latter’s advice and guidance, if they find it necessary. To
emphasize, the C-OPR or the CMO has no command relationship and control over theICS.
When the need to elevate the management of the crisis arises, as described in the
preceding tables and matrices, the C-OPR has the responsibility and authority to direct the
activation of the next higher level CMC. If this happens, the lower level CMC shall be
placed
underoperationalcommand(OPCOM)ofthehigherlevelCMCandtheyshallnowstartworking as
one expanded CMC. The existing ICS shall continue with its current mission unless
replaced by the higher level CMC through proper procedures as described above. On this
note, the lower CMC relinquishes its control over the existing ICS since it (ICS) will now be
placed under the operational control of the higher level CMC. It shall then be the
responsibility of the higher level CMC to render regular updates to the EXECOM,
NSC/NCMC through the PSR/CMSS. Same procedures shall be applied every time there
is a need to elevate the level of thecrisis.
1-7.1 Special Conditions
When a higher level CMC takes control of the situation, it is not necessary for the
previously organized ICS to be changed. There are instances that require only additional
resourcestoaugmenttheexistingICS,forthereasonthattheyaremorefamiliarwiththenature of
the operational environment and of the culture of the people within the affected area. At
this instance, the augmented resources (personnel or equipment) shall be placed under
the operational control of the IncidentCommander.
Likewise,thereareinstanceswhenamoreappropriateICSshouldbeorganizedbecause
ofthenatureoftheoperation,whichrequireshighlytrainedandequippedindividualsorunits,but
the controlling CMC remains the same. This particular instance requires the incoming ICS
to be
placedundertheoperationalcontroloftheinvolvedCMC,whiletheoutgoingICSshallbeplaced
under the operational control of the newly formed ICS to play a supporting role. This is to
avoid confusion among members of the response units oragencies.
In the event that one of the aforementioned situations happens, it is imperative that the C-
OPR (of the EXECOM, NSC/NCMC) of a particular crisis or his appropriate representative
establishes physical presence at the local CMC, purposely not to influence or intervene
with the
decisionsandoperationsofthelatter,buttoseetoitthatnationallevelintentsareadheredtoand
national level resources are properly appropriated andemployed.
When a crisis occurs within an area, which is administered by a semi-autonomous
institution such as the Subic Bay Metropolitan Authority (SBMA), the Manila
InternationalAirport Authority (MIAA), and other specially protected zones or areas, the
administering authorities are responsible in the management of crisis occurring within their
area of jurisdiction. But such responsibility ends when the conditions or situations, set at
National-Level Crisis in Table 6-6.1 ofSection6-6ofthismanual,arepresent.Inthiscase,theC-
OPRoftheEXECOM,NCMCshall immediately take control and the national level ICS
(augmented by their ICS) shall immediately be organized to respond to thecrisis.
As embodied in the 1987 Philippine Constitution and as mentioned in the above
discussion, the President is the ultimate person responsible for crisis management,
because it is his primordial duty to protect the citizens of the state from the effects of
threats, hazards, and risks. Hence, the President, at any point in the crisis management
spectrum and upon the
recommendationofthemembersoftheEXECOM,NSC/NCMC,mayintervenewiththedecisions
made by the local CMC and can hold implementation of the plan of actions of the ICS if he
finds itnecessary.
Members of the CMC and of the ICS must understand that there is a need to define clearly
the authority, responsibility, and accountability of each member and that, the principle of
inter-operability must always be taken with due consideration to avoid confusion that may
result in failure. This can only be attained through inter-agency coordination, cooperation,
and
communicationduringplanningandexecutionofoperation,whichcanalsobeenhancedthrough
continuous conduct of trainings, rehearsals, and simulationexercises.
All incidents begin and end locally. But we have to consider also that not all crisis
management assets/resources are available at the local level. Therefore, when the need
to transfer or elevate the level of management arises, the Incident Commander and the
CMC Chairperson must be prepared to relinquish command and control to avoid further
loss of lives and limbs and damage to properties.
The succeeding chapters will enable planners and analysts at all levels of crisis
managementorganizationstoformulateintraorinteragencymanualsandcontingencyandcrisis
action plans necessary to prevent the occurrence of crisis or at least mitigate itseffects.
 MODULE 2: SITUATION AWARENESS

DURATION:6 hours (2 weeks discussion)

INTRODUCTION:
Effective crisis management begins with having an effective situation awareness (SA)
process. Defined as the ability to extract and integrate information in a continuously
changing environment and to use such information to direct future actions, SA constitutes
the PREDICT
componentincrisismanagement.SA,inthiscrisismanagementmanual,isanattempttogradually
move away from the traditional concept of ‘managing crisis’ and into the more challenging
but imperative notion of preventing crisis from evenoccurring.
This manual prescribes the use of a systems-and-dynamics, diverse, and collaborative
scanning and warning process at the strategic, operational, and tactical levels for detecting
opportunities, risks, vulnerabilities, threats and potential crises. At the strategic level, SA
shall reduce surprises and eliminate potential crisis by confronting “weak signals” and root
causes. At the operational and tactical levels, SA shall enable timely preparation, through
capability
enhancementandeffectiveexecutionofcontingency,crisisaction,andcrisisrecoveryplans.

SA at the Strategic, Operational and Tactical Levels

The21stcenturythreatenvironmentisdescribedasincreasinglycomplexanduncertain,
whereinthreatscomefrommultiplesources,areinterlinked,andarerapidlyevolving.Threatand
risk identification, prioritization, handling, and response have become increasingly
challenging.
Analystsmustbeabletomanageuncertaintyandprobability,detectpotentialsourcesofconflict,
assessimpact,andcorrectlyjudgetheefficiencyofpublicpolicyresponse.Theserequireanall-
sourcescanningandwarningprocesswithimprovedsense-makingcapabilitiesandenhanced
inter-agency/department and multi-stakeholder approach at the strategic, operational, and
tacticallevels.

MODULE TOPICS:
Strategic Situation Awareness
Operational Situation Awareness
Tactical Situation Awareness

LEARNING OBJECTIVES:

At the end of the unit, the students should be able to:

Discuss the types of Situation Awareness in crisis management

Explain the difference of situation awareness
Illustrates how Situation Awareness processes at levels shall proceed altogether

PRE-TEST:
1. Define the following:
Planning and Direction:

________________________________________________________________________
___________________________________________________________
b) Collection:
________________________________________________________________________
____________________________________________________________________
c) Processing:
________________________________________________________________________
___________________________________________________________
d) Analysis and Production:
________________________________________________________________________
___________________________________________________________
e) Dissemination:
________________________________________________________________________
___________________________________________________________

LESSON1 Strategic Situation Awareness

At the strategic level, SA means generating foresight in crisis management. It is
strategically preventing crises. In strategic SA, agencies/departments seek to anticipate
not only emerging threats and their adverse consequences, but also opportunities in the
short (0-5 years), medium (15 years), and long (25 years) terms.

The EXECOM of the National Security Council or the NCMC, the five (5) Cabinet clusters
– Good Governance and Anti-Corruption; Human Development and Poverty Reduction;
EconomicDevelopment;Security,JusticeandPeace;andClimateChangeAdaptationand
Mitigation–andtheSub-CommitteeoftheNCMCareidealplatformsforfusinginformationand
generating foresight. Other national level fusion mechanisms such as the National
Intelligence Board, the National Intelligence Committee, and the Joint AFP/PNP Intel
Committee (JAPIC) shall be employed for thispurpose.

Strategic SA consists of the following:

a. Detecting What is Happening;

b. Analyzing What Seems to be Happening;
c. Interpreting What is Really Happening;
d.Determining How Things Could Go (Scenario Building);
e. Preparing Warning Products; and
f. Conveying Warnings.

A more detailed discussion on each of these steps and suggested methodologies could be
found in Annex E. Currently at least 30 other methodologies are being explored, to update
and enhance the current methodologies being used. Briefly, detecting what is happening
means scanning the environment for risks, vulnerabilities and opportunities. Scanning shall
be intra-agency or within the agency/department; and inter-agency or with other agencies/
departments,civilsocietyorganizations,subjectmatterexperts,andthepublic.Thisdiverseand
collaborative scanning and warning process is premised on the idea that if one has to cope
with unpredictability, a detection system should be closely linked to the target – the public
– since a threat, adversary or crisis must ultimately attack the target to succeed. Bringing
the public on
boardconsequentlyreducesuncertaintiesabouthowathreat,adversary,orcrisisshallproceed.

This is followed by analyzing the scanned/gathered information. Agencies/departments

shallmakesenseofthelinksbetweenseveralvariablesorindicators–classifiedasdriversand/
orinhibitors–andhowtheyrelatetotrendsandtheagency’sinternalandexternalenvironments. It
is identifying which are the more influential indicators (among the drivers and inhibitors).
InfluenceAnalysis,whichisexplainedindetailinAnnexE,isoneofthemethodsusedtoidentify the
more influentialindicators.

Thelinksandbehaviorofthemoreinfluentialindicatorsofanidentifiedthreat,vulnerability or
opportunity is then interpreted against the agency/department’s most current available
information, especially its organizational capabilities and weaknesses, plans, and
strategies. Threat, risk, and vulnerability analysis is employed at this instance; a detailed
discussion is
providedinAnnexE.Theconcernedagency/departmentshallagainmeetwithotheragenciesto
completely explore the relationships and the future direction of these influentialindicators.

Determining how things could go or scenario building is concretely exploring the future
direction of opportunities, risks, threats, and potential crises. Agencies/departments focus
onthemorecrucialvariables/indicators,thencraftandsimulatescenarios,andassessprobability
and direct/indirectimpacts.

Warningproductsarethenprepared.Warningreportscouldcomeinseveralformsbut they shall

consist of Drivers and Inhibitors, Scenarios, Areas of Convergence and Flashpoints, Policy
Recommendations, Limitations, Contradicting Analysis, Analysis for further development
andEnd-users.

Warningproductsarethenconveyedinthemostefficientmethod.Warningproducts from
strategic SA shall be conveyed to decision makers at the strategic level for the evaluation
andformulationofrelevantpolicies.Attheoperationallevel,warningproductsshallbeconveyed
todecisionmakersofconcernedagenciesanddepartments,and/orlocalgovernmentofficesfor
the preparation and execution of contingency, crisis action and recovery plans. In
preparing and conveying warnings, agencies/departments shall dissociate themselves
from biases and self- interests. They shall also monitor weaknesses of the SA process to
improveoutputs.
ThevalueofwarningproductsinstrategicSAisNOTdefinedbythewaytheyarerealized,
butbytheirimpactonstrategies,decision-makingandonfuturestateofaffairs.Warningproducts
should draw attention to an issue and lead to decisions that eliminate the threat. They
should convince decision makers to allocate resources where the “real risks” are. Strategic
SA is a
rigorousprocess.Morethantheabilitytodetectandwarnofrisks,threats,andpotentialcrises,it
demandswisdomandskillinidentifyingandemployingopportunities.StrategicSAthusrequires
intuition and creativity, diverse academic expertise and experience, and competent ability
to review and offer alternative views andmethodologies.

LESSON 2 Operational Situation Awareness

Strategic SA shall be complemented with operational and tactical SA. The process of
generating operational SA consists of the following:

a. Planning and Direction;

b. Collection;
c. Processing;
d. Analysis and Production; and
e. Dissemination

A detailed discussion on each of these steps is provided in Annex E. In brief, planning

anddirectingisidentifyingthecoursesofactiontotakeandhowtheyshallbeundertakenwhen
tasked with a specific information requirement. It is listing what we know about the
information
requirement,whatweneedtofindoutandthewaystogathertheneededinformation.Collection is
gathering information overtly and covertly, the latter through special collection methods.
Processing is evaluating all the gathered information and putting it into an information
report. This information could be anything from a translated document to a description of
aphoto.

Analysis and production is taking a closer look at all the information and how it fits
together, while answering the initial information requirement. It is assessing what is
happening
andwhy,whatmightoccurnext,andhowitaffectsthepublic’sinterestsandthatoftheagency’s/
department’s.Threat,risk,andvulnerabilityanalysis,discussedinAnnexC,isalsoemployed at
thisinstance.

Dissemination is giving our final written analyses to support information requirements

identified at the strategic and tactical levels. These may come back with more questions
and prompt the start of the whole process again. These written analyses shall confirm,
counter, or
modifyindicatorsofemergingthreatsidentifiedinstrategicSA.OperationalSAthusprocesses
warnings from strategic SA – a top-to-bottom approach – giving warnings form and making
them actionable. It identifies the more specific features of emerging threats’ capabilities
and vulnerabilities, targets and intents against that of theagency’s/department’s.

Thisiscomplementedbyabottom-upapproach,whereoperationalSAconveyswarnings from
tactical SA for the disposition/use of operational and strategic SA. This includes coming up
withnewSAgoals.SAatalllevelsthusneedstobeadaptive,facilitative,anddynamictobeable
torecognizeandadvancenewSAgoalsontopofexistingones.Moreover,SAprocessesatthe
operational and tactical shall need to work within the political and administrative cycles
ofthree
to six (6) years.
Through this entire process of confirming, countering, and/or modifying indicators of
emerging threats, operational SA attains its goal of providing information crucial for the
agency/ department’s preparation and execution of contingency, crisis action, and crisis
recovery plans against diverse threats.
LESSON3 Tactical Situation Awareness
At the tactical level, SA is the systematic and continuous process of monitoring an
identifiedthreatshortlybeforeacrisisoccurs,toeliminateordisruptanoutbreak;duringthe crisis,
in preparing and performing crisis action plans; and post-crisis, to reduce escalation or
resurgence and to ensure speedyrehabilitation.
Generating tactical SA is similar to generating strategic and operational SA except that it is
more deliberate, is aimed against an identified threat or crisis, and is undertaken by units
thatarenearandmorefamiliartotheidentifiedthreatorcrisis.Italsodemandssuperiorabilities
inpattern-recognition,action-selection,anddecisionmakingunderseverepressure.Generating
tactical SA consistsof:

a. Defining the Operating Environment of the Identified Threat or Crisis;

b. Describing the Impact of the Operating Environment to the Identified Threat or Crisis;
c.EvaluatingCapabilities/VulnerabilitiesoftheIdentifiedThreatorCrisis’andtheAgency and
Supporting Agencies;and
d. Determining an Identified Threat or Crisis’ Probable Direction
Annex E provides a detailed discussion of each of these steps. A sample checklist on
SituationAwarenessaidingdecisi specific
on makers in policy analysis, tactical
evaluation or formulation SA
leading to prevention or
elimination of emerging crisis
Short-term (0-5 by confronting weak signals
Strategic yrs) and root causes at earliest
Situation possible time and throughlong-
Awareness Medium-term termstrategiesandcost- effective
SITUATION (15 yrs) capabilityenhancement
AWARENESS (SA)
Long-term (25 SituationAwarenessaidingdecisi
yrs) on- makers in identifying
indicators of emergingcrisis in
thenext zero to 25 years.
Through information
requirementsleviedbyStrategicS
Ato Operational SA, these
warnings shall be confirmed,
Situation Awarenessaiding
modified
decision- and/or
makers‘given shape
in contingency
andform’
Several months planning and crisis action
to two (2) years planning intended to disrupt or
before a crisis prevent a rapidly evolving or
mayoccur near-
Operational/ termoutbreak.Thisensureshigh-
Tactical probability of success in
Situation During Crisis neutralizing perpetrators
Awareness
Situation Awarenessaiding
decision- makers in crisis action
planning and execution leading
to reduced adverse effects of
the crisis
requirements is also provided in Annex F.
Figure2-1.1sumsupSAatthestrategic,operational,andtacticallevelsthroughscanning
andwarningandtheendsbywhichtheseprocessesareundertakenatthepre-crisis,crisis,and
post-crisisintervals.

Figure 2-1.1

The next figure illustrates how SA processes at the strategic, operational, and tactical
levels shall proceed altogether
Post-Crisis

Situation Awarenessaiding decision- makers in crisis recovery planning and execution leading toreduced lik
Figure 2-1.2
It is important that strategic, operational, and tactical SA be undertaken in a dynamic,
systematic and sustained manner. Crisis management offices/units of each
agency/department shall conduct SA at the national, regional, provincial, city and
municipal levels. At the national level,SAreportsshallbefusedattheSub-
Committee,NCMC,toensureacohesiveinter-agency/ department and multi-stakeholder
response against current and emerging threats and crises at all levels. Existing
mechanisms and entities can also be mandated to undertake these functions at the local
levels. The CMSS, which serves as the Secretariat to the EXECOM/NCMC, shall be
working with crisis management offices/units of different agencies/departments, through
the Sub-Committee of the EXECOM/NCMC, in undertaking diverse and collaborative
scanning and warning of emerging crises at the strategic, operational and tacticallevels.
Effectivelyanticipatingandpreparingforcrisesisaseriousdisciplineinmanygovernments and
private organizations’ policy-making and planning processes. All too often the details on
when, where and how a crisis will strike can never be predicted or known. Crises will
always take everyone by surprise. Thus, the measure of effectiveness is when
agencies/departments, decision-makers, and the public are at an appropriate level
ofreadiness.
Through diverse and collaborative SA at all levels, agencies/departments shall have a
diverseviewofthefuture.Thevariedandcollaborativewaysof:rehearsinghowacrisiswillplay
out;analyzingandformulatingnecessarypolicies;preparingcontingencyandcrisisactionplans;
identifying and employing opportunities for preventing and/or changing the course of
crises; and building and enhancing long-term and cost-effective capabilities shall
ultimately prepare government units for anyeventuality.
 CHAPTER 3
CRISIS PREVENTION MEASURES

DURATION:6 hours (2 weeks discussion)

INTRODUCTION:
“Crisispreventionisbetterthancure.”Whenemergingthreatsaredetected,thischapter presents
measures to prevent crises from occurring or mitigate its consequence when they occur,
through policy formulation, contingency and crisis action planning. It prescribes uniform
processesonthesemeasuresinordertoharmonizeinter-agencyeffortsincrisispreventionand
response.
MODULE TOPICS:
Policy Process in Crisis Management
Inter-Agency Contingency Planning
Crisis Action Plan

LEARNING OBJECTIVES:

At the end of the unit, the students should be able to:

Discuss the Crisis Prevention Measures

Explain the present’s measures to prevent crises from occurring or mitigate its
consequence when they occur and crisis action planning

PRE-TEST:
What are the issue policies that provides by the president in Administrative Code of 1987?
________________________________________________________________________
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LESSON 1 Policy Process in Crisis Management

Policydescribestheintentionofthegovernmentandprovidestheprinciplesthatgovern action
towards certain ends. In the context of crisis management, policy directs and becomes the
consideration from where responses to crises or disasters are derived. Strong and relevant
policies enhance responses to crises anddisasters.
Policies are formulated by the executive and legislative branches of government. The
Congress is the highest policy-making body whose deliberations are made into laws. Other
policies in the form of a law are international treaties and juridical decisions. While a policy
guides actions to achieve a desired outcome, a law can compel or prohibit behaviors. The
1987 Constitution serves as a guide in the formulation of all laws and policies of the
country. It is the responsibility of the Judiciary to declare whether a law or policy is
constitutional or not.
As mentioned above, policy formulation in government is the responsibility of the
Executive and Legislative branches. The President being the head of the Executive
Department has formidable legislative powers. The Administrative Code of 1987 provides
that the President can issue policies in the form of: Executive Orders, Administrative
Orders, Proclamations,
MemorandumOrders,MemorandumCirculars,andasCommanderinChiefoftheAFP,General
and SpecialOrders.
HeadsofAgenciesintheExecutiveBrancharealsoempoweredtoissuepoliciesthatwill
guidetheactionsofbureaus,offices,units,andindividualsfortheirdesiredendinrelationtothe
threat orcrisis.
The Local Government Code also empowers Local Government Units to formulate their
own policies. Local Chief Executives can issue executive orders while the Sanggunian at
the
provincial,municipalorcitylevel,andthebarangaylevelformulatespoliciesfortheirconstituents
(e.g. ordinances).

3-1.1 Policy Process

With different sectors of the government empowered to formulate policies, this chapter prescr

Figure 3-1.1Policy Process

a. PolicyAnalysis

The first step in policy analysis is recognizing that a threat exists, which could result to
crisis if it is not addressed. This is followed by studying the threat and its causes in detail.
This
stageinvolvesdetermininghowawarethepublicisofthethreat,decidingwhoshouldparticipate
inaddressingit,andconsideringwhatmeansisavailabletopreventitsoccurrenceormitigateits
effects. Answers to these questions help policy makers gauge what policy changes are
needed, if any, to address the identified threat. The agenda — which problems are
addressed — can be set by the public, interest groups, government officials, and
otherstakeholders.

b. Policy Formulation

This step is typically marked by discussion and debate between government officials,
interest groups, and individual citizens to identify potential obstacles and, to suggest
alternative
solutions,setcleargoalsandlistthestepsthatneedtobetakentoachievethem.Thispartofthe
processcanbedifficult,andoften,compromiseswillberequiredbeforepoliciescanbewritten.

The following information must be found in a policy formulated for the purpose of crisis
management:
A clear identification of the emerging threat or crisis;
A clear identification of the national goal (endstate);
GuidanceofthePresidentand/orHeadofLeadAgencyorC-OPRortheChairperson, localCMC;
The concept on how to address thethreat;
The agency or office primarily responsible in addressing the potential threat or crisis, and
the command and control relationship with otheragencies;
A clear-cut task distribution – identifying the lead and the supportroles;
A monitoring and evaluation mechanism for activities;and
Identification of source of fund orsupport.
C. Policy Implementation

Crisis management policies are promulgated through official written documents. These
policy documents often come with the endorsement or signature of the President or other
executive powers to legitimize the policy and demonstrate that it is considered in force.
Such documentsoftenhavestandardformatsthatareparticulartotheorganizationissuingthe
policy.
The approval of a policy for crisis management is generally followed by a contingency
plan.Figure3-1.2illustratesthenexusofapolicytoacontingencyplanprescribedbythismanual.
At the national level, the Office of the National Security Adviser (ONSA) or the Lead
Agency/C-
OPRundertakesStrategic,OperationalandTacticalSituationAwarenesstodetermine emerging
threats. The response to emerging threats may be decisions to undertake specific courses
or policy recommendations. ONSA monitors the actions taken by lead agencies in
addressing an emerging threat. The lead agency, meanwhile, formulates specific
guidelines for
itsunitsandofficestosupportdecisionsandrecommendationsmade.Similarly,localgovernment
unitsshallspecifyguidelinesvis-a-visthedecisionsandpolicyrecommendationsmadebyhigher
authorities.
Inter-agency contingency planning is then conducted among all concerned agencies/
departments and other stakeholders. The following diagram illustrates the nexus of the
public policy process and the phases of crisis management – both within the context of
drafting a contingency plan.
Figure 3-1.2 Policy to Contingency PlanFlowchart

D. Policy Evaluation

Policy evaluation involves designating an office that shall monitor and evaluate the
implementationofthedecisionsandguidelines,andapprovedpoliciesandcontingencyplans.It
isthroughastudyofhoweffectivethenewpolicyhasbeeninaddressingthethreat,whichoften
leads to additional policychanges.
LESSON 2 Inter-Agency Contingency Plan (IACP)
The UNCHR Handbook for Emergencies defines contingency planning as a forward
planning process in a state of uncertainty, in which scenarios and objectives are agreed
on; managerial and technical actions are defined; and potential response systems are put
in place, in order to prevent or better respond to an emergency or critical situation.
Contingency planning is undertaken before an emergency and usually in a state of
uncertainty. Planning shall involve making assumptions and developing scenarios.
Scenarios aid in visualizing and simulating
responsesbyindividuals,agencies/departmentsandorganizations,ensuringeffectiveresponse
.

Essentials of an Inter-Agency Contingency Plan

An IACP intends to address an emerging threat in a particular time and space, within
thecapabilityofparticipatingagencies,followingtheprocessprescribedinparagraph3-2.2.This
chapter prescribes three essential components of an IACP: Situation Awareness, Strategy,
and Command andControl.

a. Situation Awareness is the situation paragraph of the IACP. It constitutes SA

productsandprocessesinplace.Itconsistsofaconcisedescriptionofthethreat,itsoperational
environment; and the capabilities of participatingagencies/departments.

b. Strategy is the section in the IACP, which describes the ends, ways and the means of
the plan. Strategy connects the ends with the ways, and means of achieving those ends
within a particular context. The ends are the goals or strategic objectives of a strategy. The
first and most crucial task is to identify the ends. The broad strategic objectives must be
properly
defined.Thewaysarethepolicies,programs,andprinciplesandthecorrespondingcommitment
of appropriate resources to attain the strategic objectives. Planners should devise the
ways or
methodsofdevelopingandutilizingthemeanstoattaintheends.Themeansaretheinstrument
ofnationalpowerrequiredtoachievetheends.Afterthe“End”and“Ways”areidentified,planners
must examine the means available to achieve the desiredend.

Strategy has been described as a “two-actor” art form in which the strategist must
considerbothhisplanofactionandthethreat.WhencraftingtheStrategyparagraphintheIACP,
agencies/departmentsmustalsoconsidertheinstrumentsofnationalpowerspecifically:political,
diplomatic, information, military, and economic, in developing the plan ofaction.

c. Command and Control, in the context of crisis management, and one that involves
severalagencies/departments,isthesectionintheIACPthatdescribestheexerciseofauthority
and direction by the Crisis Manager over assigned/attached units/individuals to accomplish
the IACP’s objective. Chapter 6 of this Core Manual contains a detailed discussion on
Command and Control. Agencies/Departments may also refer to: “Contingency Planning
forEmergencies,” A Manual for Local Government Units (3rd Edition, October 2007); and
Annexes G and H of this Core Manual for the Inter-agency Contingency Planning Toolbox
and the prescribed IACP Format,respectively.

3-2.2 Inter-Agency Contingency Planning Process (IACPP)

Inter-agency coordination intends to ensure focus on a common goal and appropriate
allocation of capabilities and resources. There are four general considerations for inter-
agency contingency planning:

Each agency must determine the scope, nature and end state of theirparticipation.
Eachagencyshallensurethatrespectiveroles,capabilitiesandmethodsofoperations
areunderstood.
Each agency shall develop a shared appreciation of mutual needs, develop the
fundamental rules to conduct operations, undertake certain activities, and promote
confidence in theirinterdependence.
Each agency shall establish short-term objectives in the context of the long-term desired
end-state in order to assure the value of the operation beyond its immediate conclusion.
Having established the necessity for inter-agency coordination for crisis response, the
above considerations set the tone for inter-agency contingency planning process. An
IACPP flowchart is shown in Figure 3-2.1.

The purpose of the IACPP described in this chapter is to create a system by which the
agencies and other stakeholders can effectively integrate the operations of all Government
Agencies and Other Stakeholders (GAOS) in addressing a specific threat or crisis. While it
is true that a contingency plan can be written by an individual or a group of individuals
following a prescribed format, going through the process of formulating an IACP is
equallyimportant.

Although the day-to-day inter-agency process is generally effective in producing

coordinated policy options and decisions, the process requires additional coordinating
mechanisms and planning tools to cope with the demands of providing coordinated
guidance for operations in response to an emerging threat or crisis. Undergoing the IACPP
is consistent with the Whole-of-Nation Approach principle and ensures the commitment of
GAOS involved in the planning. Through the process, GAOS will understand the nature of
the threat and will help formulate the strategy to address it. Capability building and
enhancement of different agencies will form part of the continuous preparations, while
simulation and desktop exercises increase the alertness and readiness of GAOS for crisis.
This whole process ensures effective response to prevent the occurrence of crisis or
mitigate itseffects.
Figure 3-2.1 Inter-Agency Contingency Planning Flowchart

LESSON 3 Crisis Action Plan (CAP)

During a crisis, the situation is dynamic. An adequate and feasible response in a crisis
demands flexible procedures keyed to the time available, to communications, and to the
use of contingency plans.

While contingency planning is conducted in anticipation of emerging threats, Crisis Ac- tion
Planning is the immediate response to situations completely unforeseen. Usually, the time
available to plan for feasible courses of action is short. This section prescribes a Crisis
Action Planning (CAP) procedure which can be used by crisis management organizations
in planning and executing deployment and employment of units/agencies or groups in
time-sensitive situa- tions. These procedures ensure:
a. Pursuit of logical procedures that begin with recognizing the problem and developing the
solution, and progress to preparing and executing decisions;
b. Rapid and effective exchange of information about the situation, its analysis and
alternative responses;
c. Timely preparation of courses of action for consideration of the appropriate CMC;
d. Timely relay of the decisions of the Chair, CMC to the IC to permit effective execution.

Crisis Action procedures describe courses of action to be undertaken by the CMC from
thetimeacrisisoccurreduntilitisresolved.Theproceduresarecategorizedintothree(3)phas- es:
Situation Awareness, Planning, and Execution as shown in Figure3-3.1.
Figure 3-3.1 Crisis Action Planning Procedure

The Crisis Action Planning Procedure is stated below:

The Crisis Manager, acting as Chairperson of the inter- or intra-agency/depart- ment’s

Crisis Management Committee or local CMC, conducts all-source SA fo- cused on the
incident that has the potential of becoming acrisis.
The Crisis Manager gathers and assesses the information collected, particularly those
coming from the On-Scene Commander (OSC). The Crisis Manager may, at this point,
also declare a threat or crisis level, depending on the situation and the prevailing
procedures of the concerneddepartment.
Whenanincidentisseenasprogressingintoafull-blowncrisis,theCrisisManager
activatestheIncidentCommandSystem(ICS)andcallsonthedesignatedIncident
Commander(IC)forthatparticularcrisis(pre-designatedintheContingencyPlan).
The IC receives instructions and guidance from the C,CMC.
The IC reviews the previously prepared contingency plan for suitability ordevelops an
Operations Plan (OPLAN) when no useful contingency planexists.
The OPLAN includes several options or courses of action (COA) which shall be presented
to the Crisis Manager or Chairperson, Crisis Management Committee (C,CMC).

OPERATION PLAN DEVELOPMENT GUIDE

Mission Analysis
Analysis of theMission
Purpose
Tasks – Specified, Implied,Essential
Constraints
RestatedMission
Terrain/Structure and WeatherAnalysis
Enemy/ThreatAnalysis
Forces/UnitsAvailable
RiskAssessment
Course of Action Development (COA)
Analyze Own and Threat/EnemyCapability
Generate Options
Select Initial Forces/Units
Develop a scheme how to moveforces/units
AssignHeadquarters
Prepare COA Statement andSketch COAAnalysis
Hasty War Game COAComparison
COA Selection

Figure 3-3.2 – Guide to making a tentative Operational Plan

7. The Crisis Manager selects the COA to beused.

8. TheICfurtherdevelopstheOPLANoutoftheselectedCOAincorporatingthesup- port
elements of the ICS in theplan.
9. At the command/order of the Crisis Manager, the IC executes theplan.
10. The Crisis Manager supervises the execution of theplan
These steps could be followed by duly designated crisis managers and incident
commanders at any level. The above procedures are flexible and can be scaled down.
Their execution is largely determined by the time available to complete the planning and
the nature of the crisis. Successful crisis action planning is rooted in constant practice and
training of first responders and other stakeholders on their tactics, techniques, and
procedures orTTPs.
Theeight(8)keyprinciplesofcrisismanagementunderpinthegovernment’sresponses to crisis
which make the execution of each of these procedures more effective. These principles
can strengthen, organize and coordinate response actions across all levels, such as
utilizing
the“whole-of-nationapproach”andthroughstrengthenedinter-agency/departmentcoordinatio
n. The tiered response emphasizes that a crisis should be handled at the lowest level
capable of handling the situation. In fact, majority of incidents are successfully managed at
the locallevel.
The success and outcome of responses to emerging threats, risks, and crises are also
determined by the policies and contingency plans that have been formulated. As the
security environment remains dynamic and complex, the policies and contingency plans
must be revisited to maintain relevance, responsiveness, and timeliness. Stakeholders
must always be ready to act in times of crisis through a regular preparedness program.
Agencies/Departments should promote inter-agency/ department coordination and ensure
that capabilities are built and enhanced to support response actions.
 CHAPTER 4

BUILDING AND ENHANCING

DURATION:6 hours (2 weeks discussion)

INTRODUCTION:
Successful crisis management would be the capability to anticipate and prepare for
potential crises, provide accurate information, pre-empt incidents, provide timely response,
and determine long-term solutions. This is only possible if individuals, families,
communities, and organizations have embodied a culture of preparedness and resiliency.

Despite a culture of preparedness, one should always assume the worst – a crisis spiraling
into other crises. A multi-layered capability would be important, one that addresses
different levels of a crisis at any given time. This multi-layered capability consists of
principles or commonly accepted doctrines and beliefs, which can be depicted as a cycle
or chain with no beginning or end; each one reinforcing the other. These principles are
thefollowing:

Figure 4.1 Principles of Building and Enhancing Capabilities

MODULE TOPICS:
Principles in Capabilities BuildingandEnhancement
Principles in Conducting Needs Assessments/ Vulnerabilities’
Assessment of Capabilities to Determine Effective andEfficient Crisis Management
Principles in Capabilities Enhancement orBuilding Plans
Principles inSustaining Capability
Principles in Prevention and Mitigation of anIncident from Becoming a Crisis
Principles in Evaluating Crisis orEmergency Operations
Principles in Making Multi-Year CapabilitiesDevelopmentPlan
Principles in Annual CapabilityDevelopmentIncrement
Principle for CapabilityResourceManagement
Principles in FosteringStakeholders’Relationships
LEARNING OBJECTIVES:
Discuss the multi-layered capability consists of principles or commonly accepted doctrines
and beliefs which can depicted as a cycle or chain.

PRE-CRISIS DURING CRISIS POST-CRISIS

 PREVENTION/ PERFORMAN POST CRISIS
PREDICTION PREPARATION
PRE-EMPTION CE RECOVERY

Situation
Awareness Situation
Situation Awareness ThreatAnalysis Awareness
Risk/ ThreatAnalysis
Situation Awareness
ThreatAnalysis Vulnerability Risk/
ThreatAnalysis
Risk/ VulnerabilityAnalysis Analysis Vulnerability
Vulnerability Analysis
Analysis
Risk Reduction Assessments Emergency
Risk Reduction
Emergency Plans & Procedures Response Human Capital
Assessments
Crisis Management Plans &
Procedures Crisis Governance &
Management Business
Response

LESSON 1: Principles in Capabilities Building and Enhancement

Stakeholders, in general, require constant capabilities enhancement for Crisis

Management. The core of these capabilities rest in an individual or unit’s ability to analyze
situations and operate/respond in the short-term. In the long-term, the focus is generally in
building and enhancing capabilities to handle unforeseen events. The chart below
summarizes the essential activities that stakeholders need to consider before a crisis
occurs, during crisis, and post-crisis. Capability Building and Enhancement are likewise
premised on these activities:

SituationAwareness

As discussed in Chapter 2 of this Core Manual, Situation Awareness refers to the ability to
detect, identify, and anticipate incidents or risks that can turn into a crisis. In capability
buildingandenhancement,SituationAwarenessreferstobuildingandenhancinginstitutionsand
processes for attaining Situation Awareness aimed at preventing or addressing a crisis.
The principles of threat analysis and vulnerability assessment, in particular, are crucial
processes and methodologies that stakeholders shall need to consider in order attaining
completeSituation Awareness. Attaining Situation Awareness, in turn, prepares
stakeholders for undertaking other
essentialactivitiesprescribedinthechainofprinciplesofcapabilitybuildingandenhancement.

LESSON 2: 2 Principles in Conducting Needs Assessments/ Vulnerabilities’ Assessment

of Capabilities to Determine Effective and Efficient Crisis Management
Knowing one’s capability is important as it recognizes gaps or deficiencies that need to
beaddressedinordertopreventanyfailurewhenaddressingthecrisis.Stakeholders,therefore,
must perform a needs or vulnerabilities assessment and determine the impact of the gaps
or deficienciestotheoverallmandates,inordertofacilitateplanningandhelpinevaluatingneeds
prior to, during, and after a crisis. Needs and vulnerabilities assessments and evaluations
must include thefollowing:
Leadership

A leader should have the ability to direct a team towards the achievement of a specific
goal within a timeframe using available resources, such as to gather information, to
establish
priorities,andtodefinecrisismanagementplans.However,beyondtheseskills,crisismanagers
must have sterling qualities that place high value on their psychological make-up in order
for them to be decisive at the right moment and take actions with audacity, keeping in mind
the great responsibility placed upon them. Crisis managers should know how to propel a
multi- stakeholderandmulti-
skilledteamunderaneffectivecollaborationschemethathasthefollowing components:

Stakeholders with a vested interest in thecollaboration

Trusting relationships among and between thepartners
A shared vision and common goals for thecollaboration
Expertise
Teamworkstrategies
Open communication
Motivatedpartners
Means to implement and sustain the collaborative effort;and,
An action plan. (Refer also to Chapter 3, Section 3-2.5 for the Inter-Agency Contingency
Plan and Section 3-2.6 Crisis ActionPlanning.)

Crisis managers as collaborative leaders should be able to: build as well as lead the
team;devotetothetask;beskilledintheartofcompromise;andbecommittedtotheeffort.Some
leadership styles and skills that could enhance collaboration employ the concept of
Principle- centered Leadership and Shared Leadership. This ensures the ability to share or
apportion responsibility to optimize various leadership skills of partners or stakeholders in
a collaborative
initiative.Requirementsfromleaderswilldefinitelyvaryduringacrisisandwhilethecollaboration
progresses.Leadersknowwhentheyarenotthebestchoiceforaparticularroleortaskbecause
they recognize their personal strengths and weaknesses. Even crisis managers can
gracefully decline opportunities that may be better suited to other partners
andstakeholders.

Strengthen the institution; let it function as mandated. Decentralizing decision- making and
accountability gives individual officers the authority to solve problems and make
operational decisions suitable to their roles. Leadership and initiative is required and
rewarded at every level, with commanders, supervisors and line officers held accountable
for decisions, and the effects of their efforts at solving problems and helping the
community. A good leadershould develop an incentive program to reward good practices,
excellence, and voluntary acts among stakeholders.

A flatter decision-making structure also ensures more effective crisis prevention and
response. Empowering officers at lower levels may help them feel free to pursue leads or
suspected terrorist activity. Imbuing them with decision-making authority and familiarizing
them with making and taking responsibility for important decisions could be of value in any
crisis.

The crisis manager takes on several leadership roles. As the “project shepherd”, he
becomes a project officer, an active participant, and a motivator. As “project champion”,
he assumes a policy making position and gets support for the collaborative initiative from
the community ororganization.
People as HumanResources

A person as human resources includes both leadership and support staff, not only having
the right number, but also the appropriate skills and competencies. A collaborative
approach means understanding the motivations, in particular, Filipino values and
practices, interests, competencies, and resources of all stakeholders in a crisis.
Fortunately, the government has crisis partners in volunteers. Here, crises have brought
out the best in Filipinos.

Install a Culture of Preparedness linked to Filipino Values. Our national heroes and
forbears have handed to us the innate “bayanihan” spirit. This value can propel “unity of
effort”
thatisalsoinvokedbygovernmentasa“HolisticApproach,”a“Convergence”towardsacommon
national vision, or “Kapit-Bisig” against poverty and “Bridging Leadership” that encourages
stakeholders to worktogether.

Alltheseareformsofcrisismanagementandconflictresolution,andameanstolinklocal
securityanddevelopmentplanningtosolvelocalcomplexproblems.Theexecutivebranch,along
withtheAFPandthePNP,hasrecognizedthatconflictsandcrisescannotbemilitarilyaddressed
alone. Ideally, a civilian local government plan and response should be more proactive,
thus having a higher impact and wideroutcome.

Crisis management starts even before the crisis occurs. The enhancement and building
ofcrisismanagementcapabilitiesrequiresacomprehensiveapproach.Thisway, therewouldbe
cohesionamongstakeholdersinallphasesofthecrisis,especiallywhenoneormorestakeholders
(e.g., frontline or implementing departments, agencies and LGUs who may either be the
front- liner or who are beneficiaries of the assistance, as well as their private sector
partners) are needed to work together in responding to acrisis.

There is a need for stakeholders to work properly and coordinate efforts so that even with
scarce resources, they may deliver goods and services where it is needed in real-time. A
self-check (through simulation exercises or post-action assessment) would also lead to
change, reform, and complete transformation of behaviors and attitudes, that could
consequently affect their planned conflict and crisis response positively. Filipinos have
proven that synergy is at its highest when civil society organizations, NGOs, and local
government executives work with uniformed men and women of the police and themilitary.

Engage the Youth. The Economic and Social Commission for Asia and the Pacific, United
Nations evaluates that the Filipino youth are often identified as partners in school-based
partnerships. However, experience shows that even out-of school youth partners are
valuable
andareanimportantresourceineverycommunitycollaborationeffort,fromplanningtoproblem-
solving.TheSangguniangKabataan(SK)shouldplayanimportantroleinsocietyasthepolitical
andlegislativerolemodelsandthemechanismtodeveloptheyouth(includingtheout-of-school).
Ifpossible,theycanhelp,alongwiththeNationalYouthCommission,harnesstheenergiesofthe
youth towards crisis preparedness and communityresiliency.

StartthemYoung.TheDepartmentofEducation(DEPED),whichoverseeselementary
andsecondarylevelsofyoutheducation,hasissuedseveraldisasterpreparednessmemoranda
highlighting the “role of the department in managing the impact of disasters and the need
for vigilance by school communities so that the risk from natural and man-made disasters
is significantly if not totally reduced.” DEPED, as a long-term policy, should continue to
organize the National Literacy Conference aimed at creating public awareness on the role
of literacy in attaining a peaceful and sustainable future involving especially for those in the
conflict affected areas. Boy Scouts, Girl Scouts, Citizens’ Army Training, Scout Community
Leaders’ Training,
thePhilippineRedCross,FireVolunteerGroups,andothersimilarentities,haveinstitutionalized
self-help or first aid trainings in their curriculum and training programs to harness the
youth, young professionals, and businessgroups.

It is practical to develop school manuals and audio-visual aids to advocate and help
address the sector’s concerns (e.g., youth–bullying, kidnapping (in human trafficking and
organ harvesting), and sex offenders on the web, prohibited drugs in food, recruitment by
criminal and radicalgroups).Again,ithastobeawhole-of-
nationapproachbecauseallsectorsdealwithand have children of theirown.

Coordination, Cooperation,Communication
Known as the 3Cs in Crisis Management, these mechanisms pursue common goals that
need to be established at the lowest levels. These aim to close any gaps or shortfall in
capabilities when needed, and to avoid ‘turf’ issues and the inconsistencies in the overall
crisis management/ emergency operations and contingencies. The importance of
communication cannot be overemphasized here. Though it will be discussed in detail in
Chapter 6, basically communication must be two-way, available between the on-scene
emergency/crisis response personnel, their immediate supervisors, to the head of the local
Crisis Management Committee, and finally, the National Crisis Managementleadership.
Organization
There should be a clear and responsive organizational structure that supports an
organizationhierarchy,whichisneithertoounstructuredthatitfailstosupportthe3Cssystemof
Crisis Management, nor too rigid that it disables the stakeholder from responding atall.
Sustainability
The stakeholder can sustain a high level of capabilities for an extended period of time
duringcrisis.Thesecapabilitiescanonlybesustainedthroughplanningattheshort,mediumand
long-term, and allows needed skills enhancements, or procurement of equipment. More
details under Section 5-4, Principles in Sustaining Capability.

Training and Rehearsal

Aimed at enhancing specific agencies tasked for Crisis Response, this comprise
individualandcollectivetrainingandrehearsal,whereindividualsmustbepreparedtobepartof
anintegrated,inter-agencyoperation.Relatedtothis,stakeholdersshouldbecapableofworking
togetherusingindividualskillswithintheirorganizations,sothatallactorscanfulfilltheirspecific
rolesandresponsibilitiesduringacrisis.However,trainingandrehearsalshouldalsoaddressthe
operational and strategic needs of the stakeholders. Practice and rehearsal of crisis
responses bring familiarity with the Crisis Action Plan, develops assurance in the plan as
well as with the crisis management team, and identifies any shortfalls (underperformance)
or friction points (conflicting points e.g., in logistics/equipment, language, systems). A
training curriculum can be developed by the NDRRMC, NDCP, CMSS, and the ONSA and
other local or foreign training institutions in accordance with the overall capability building
plan of the local CMC. Training and rehearsal must be conducted regularly since special
skills are “perishable”, and therefore the development of these skills should besustained.

Exercises
Exercises must be done constantly to test the capabilities of personnel and their levelof
familiarization with the use of available equipment. These include interfacing between or
among agencies, in order to assist in determining deficiencies, and needs for additional or
updated equipmentorskillsenhancement,especiallyintheareaofanintegratedorinter-
agencyresponse.

Equipment

Fundamentally, this should not only comprise an inventory of equipment but rather an
assessment of the condition, availability, maintenance, and use for inter-operability to
properly perform in a crisis.
Documentation
This includes a record of contingency, emergency or crisis management plans, successful
sustainable crisis and recovery efforts, equipment maintenance, skills training, risk and
vulnerability assessment for review and future reference, and a database of trained/skilled
personnel and location of materials and equipment necessary for crisis management.
Business, Community Awareness and Support towards Resiliency

LeveragePowerandInfluence.Inplanning,andevenduringacrisis,thecollaborative initiative
will be tested when they reach a point when additional financial resources, publicity, or
support from a certain constituency would make a significant difference. Hence, it is
important to seek assistance from partners in identifying elected officials, media
personalities, business executives, or respected community leaders who could leverage
their resources and influence to assist the collaboration. A well-planned crisis
management plan or a problem solving project needing a community partnership or multi-
stakeholder approach may be of great interest and benefit for these persons, resulting in a
valuable win-winsituation.

LESSON 3: Principles in Capabilities Enhancement or Building Plans

Plansfocusedinenhancingandbuildingcapabilitiesshouldbedevelopedinaccordance with the
identified specific crisis, (i.e., crisis-specific plans), so that stakeholders must be able to
determine what, where, and when it is going to occur in order to lessen the risk or effects
of the incidentconcerned.

The planning process must consider each function from a multi-layered perspectiveand the
other recommendations from stakeholders to achieve a sense of ownership and fit into the
prevention and mitigation efforts of thoseconcerned.

Existing plans should be reviewed, evaluated, updated or when necessary, modified to

ensure their applicability to all potential threats, and evolving situations. Once the plan has
been produced and the resources determined, allocate the most appropriate resources to
the incident.

LESSON 4: Principles in Sustaining Capability

Once acquired, capabilities should be sustained. Likened to skills, existing capabilities

must be continually monitored or it will diminish over time. Plans must be updated,
equipment serviced and tested, personnel trained and procedures and systems exercised.
Inareasthatdonotfrequentlyexperiencelarge-scalecrisis,planshavetobeevaluated and
tested. Further test on existing capabilities, under real conditions, with current plans and
resources would eventually take place when stakeholders conduct actual crisis
management
andemergencyoperationsthatmayariseanytime,hence,thebasicneedfordocumentingthe
operations.

Garnett, and Moore (2010) writes that Documentation or studies of successful

sustainablecrisisandrecoveryeffortsfocusonthreebroadapproaches--localempowerment,
organization and leadership, and planning for sustainability. Three key approaches to
enhance sustainability during a crisis and disaster recovery are thefollowing:

Incorporation of long-term recovery goals into disaster response and pre-disaster planning;

Expansion of the knowledge base, by incorporating research into recovery and harnessing
lessons learned from internationalexperiences;

Development of an outcomes-oriented approach to disaster recovery planning, including

the measurement of community-level outcomes. The U.S. Department of Homeland
Security (2010) advises that greater attention should be on long- term recovery and key
underlying principles: individual and family empowerment, leadership and local primacy,
preparation for recovery, partnerships and inclusiveness, communications, unity of effort,
timeliness and flexibility, and resilience andsustainability.

LESSON 5: Principles in Prevention and Mitigation of an Incident from Becoming a Crisis

Prevention and mitigation are crucial. Aside from active participation, stakeholdershave
tonurturepro-activeresponsestoCrisisManagement.Priorityofresourcesshouldbegivento
prevention and mitigation efforts so that the impact of hazards and threats could be
minimized in future, and the elimination of loss and suffering can be maximized. For
example, potential
targets(softtargets)ofterrorists,securitythreatgroups,organizedcrimesyndicatesormentally
derangedindividualsshouldbeidentifiedthroughintelligenceandhistoricaldatainspecificareas.
Stakeholders being targeted should be informed and protected (target hardening) so that
they can help in prevention andmitigation.

Results of the prevention and mitigation effort by stakeholders have to be reflected in

future hazards, risk and vulnerabilities’ analysis, and capability assessments.
TheestablishmentofaCrisisManagementorEmergencyresponsesystemthrough Emergency
or Crisis Management Plans and Procedures is in itself a pre-emptive or preventive risk
reductionstrategy.

Fostering Stakeholders’ Relationship, explained further in Section 5-10, can prove

valuable at this point as prevention and mitigation would need decisions and actions by
other actors ahead of a crisis.

LESSON 6 : Principles in Evaluating Crisis or Emergency Operations

The outcome of crisis operations, with the stakeholder acting alone and with other actors,
should be analyzed and assessed in terms of actual against required capabilities, based
upon the Critical Success Factors reflected in Table 4-6.1.

Critical SuccessFactors
There are Critical Success Factors that cut across the pre-, during and post- crisis. The
assessment should be considered in updates of capabilities enhancement and building
plans and priorities and future prevention and mitigation efforts.
PRE-CRISIS DURING CRISIS POST-CRISIS
operational responsibility decision-making duringthe operational
disseminated crisis integrationwith other
program and response documentation ofevent stakeholders/actors
priorities during thecrisis
crisis management tools to support teams and
organization (teams, in-crisisprocesses
mandate, process during the crisis
participants,roles, (threat assessment until
designated backups, team the resolution of thecrisis)
leaders) crisis command centre
operationalpolicies operations (including Risk
applied principles of crisis Communication utilizing
management external
inaccordance to the mediastakeholders) Table 4-6.1
CoreManual Critical
pre-crisis Success
responseplanning Factors
geographicalimplementati
on and organizational-
wide implementation
Itcannotbeemphasizedmorethatsimulationtoolsorexercisesshouldbeundertaken for
evaluation purposes, especially in areas where disasters occur infrequently, to assist in
providing realistic responses to thecrisis.

LESSON 7: Principles in Making Multi-Year Capabilities Development Plan: Framework for

Improving Capability
After identifying gaps in capabilities and testing them in relation to an actual crisis,
stakeholders may make a Multi-Year Development Plan. The Multi-Year Capabilities Plan,
which ispartoftheMulti-YearDevelopmentPlan,shouldbebasedonmedium(3to6years)tolong-
term (more than 6 years)2 that can be projected beyond, using the Foresight and Horizon
Scanning tools (refer to Situation Awareness) that the stakeholders can avail of to meet
the desiredlevelofcapability,sothatthelong-
termdevelopmentprojectscanbeproperlyscheduled andfunded.
The Plan should include all crisis management projects and activities, in conjunction with
the capability and vulnerability assessment results. This should be used by the LGUs, for
example, in addressing the need for improvements that are specific in their areas, and in
preventing the use of funds against its intended purpose.

At the National Level, this information should be used to develop a National Multi- Year
Crisis Management Development plan for supporting stakeholder agencies and LGUs that
are directly handling crisis management efforts, and for determining priority requirements
of financial and technical support from the
International organizations, foreign government, ASEAN, and Public-PrivatePartnerships.
LESSON 8: Principles in Annual Capability DevelopmentIncrement

Movingtowardsdesiredcapability,stakeholdersshoulddetermineindetailwhatistobe
donefortheincomingyearintheAnnualBudgetoftheagencyconcerned,becausesituations
change and these may have not been reflected in the accomplishments the yearbefore.

Changes in situations identified should be reflected in modifications to the multi-year

development plan and in determining the following year’s annual budgetincrement.
TheplanningprocessshouldprovideLGUsandNationalGovernmentAgencies(NGAs)
counterpartswithdetaileddescriptionsofwhattheyplantoaccomplishintheincomingyear,and
their requirements for financial and technical assistance in support of theseefforts.

Because resources are limited, it is imperative to identify and acquire capabilities with
multiple-use applications (e.g. whether natural or man-made crisis of various types). For
this purpose, the CMSS shall establish a National Capability Resource Management
database in conjunction with the NDRRMC, to ensure mutual support between these two
mechanisms of government. In addition, departments, LGUs and other agencies of
government involved in responding to emergencies shall furnish, through appropriate
channels, the CMSS and the NDRRMC, their current capabilities and their planned
acquisition for early location and tracking. Departments shall conduct their own resource
inventory, in coordination with the Crisis
ManagementCommittee.Theprocessofauthorityandmovementofassetstothefrontlinewhen
needed shall be guided by Figure 3-2.2. (Response EffortFlowchart).

CMSS will, in turn, further develop assessment standards and criteria to provide the
concerned agencies with further evaluation tools for prioritization of capabilities building
support that can be recommended for the Stakeholders’ Multi-Year Capability
Development Plan or
annualincrements.Forthispurpose,CMSS,ONSAshallbepartoftheexistingmechanismsthat
looks into the operational readiness of concerned departments andagencies.

Hence, CMSS, ONSA shall be part of the operational preparedness evaluation of the
agency concerned.

LESSON 9: 9 Principle for Capability Resource Management at the Local Government

Units, National Government Agencies, and the National Crisis Management Committee

TheLGUsandNGAswiththeircounterpartsindifferentregionsandprovinces nationwide are

expected to contribute to the overall Crisis Management capability of government, as duly
approved by the EXECOM, NCMC. Therefore, each project and activity should represent a
necessary building block forthis.

In a Joint DILG-DBM Memorandum Circular 2011-1 issued to all governors, city and
municipal mayors, Sanggunians, Punong Barangays, and other concerned officials,
projects covered by the 20 percent development fund now include projects to address and
respond to natural and man-made disasters and calamities.

As stated under Section 21, Republic Act 10121 otherwise known as the ‘’Philippine
Disaster Risk Reduction and Management Act of 2010”, not less than five percent (5%) of
the estimatedrevenuefromregularsourcesshallbesetasideastheLocalDisasterRiskReduction
Management Fund (LDRRMF) to support disaster risk management and crisis
management activitiesatallcomponentsand/orphasessuchas,butnotlimitedto,pre-
disasterpreparedness programs including training, purchasing life-saving rescue
equipment, supplies and medicines, for post-disaster activities, and for the payment of
premiums on calamityinsurance.

Of the amount appropriated for LDRRMF, thirty percent (30%) shall be allocated as the
Quick Response Fund (QRF) or stand-by fund for relief and recovery programs so that the
situationandlivingconditionsofpeopleincommunitiesorareasstrickenbydisasters,calamities,
epidemics, or complex emergencies may be normalized as quickly aspossible.

Consistent with the Memo from the Office of the President of the Republic of the
Philippines dated 22 March 2011, cabinet members or heads of agencies shall provide
expert advice, assistance and if necessary, resources to help resolve a crisis or
emergency.

As long as it is feasible, sourcing of funds in support of these duly approved projects and
activities may be done through inter-agency Memorandum of Agreements on Stakeholder
Partnerships or Private-Public Partnerships.
Certain improvements will be reflected in the capability assessment in an Annual Work
Increment to be prepared by agencies concerned. Emergency operations plans should
then be revised to incorporate these improvements. Multi-Year development plans should
also be
modifiedtoreflectthesechangesandtheexperiencegainedduringexercisesandtheconductof
actual crisisoperations.

LESSON 10 : Principles in Fostering Stakeholders’ Relationships

Rather than regarding crisis management from a “crisis responder-client” relationship in
the context of the Defense System of Management, which gives the connotation of a one-
way
trackandpaymentforservicesthattheGovernmentshouldprovideforfreetothepopulace,what
should be developed as a new mind-set is “Stakeholders’Relationships”.

The European Union’s Council of Ministers espouses fostering a Stakeholders’

Relationshiptoachieveacomprehensiveintegrationofcrisismanagementplanningamong the
local people, people’s organizations and CSOs, and between the local and national policy
making and operations systems. This also builds on the existing crisis management plans,
systems and capabilities that can be further broadened to the full spectrum (from incident
to post-action) of crisis in the country. In this way, the consciousness of Crisis
Management does not only come out during acrisis.
Havingacloserrelationshipwiththepopulace,CrisisManagerswouldbeabletoidentify
precursors or triggers for crisis, that can be monitored prior to, during and after the crisis.
Hence,assessmentsfallingunderSituationAwarenesswouldbeabletoprovidepriornotification
on an emerging incident and in a worst-case scenario, and the incident that occurred when
it happens in real time, so that measures can be provided that can prevent the incident
from escalating.

These precursors/ triggers can range from conditions of an emerging crisis, and the
underlying causes and dynamics of the crisis that includes key actors. Stakeholders would
be able to understand these triggers better, through joint assessments and accessing of
subject
matterexpertssothattheproblemscanbeanalyzedfromallanglesandthatallissuesaffecting the
crisis arecovered.

Building an information management system, to monitor, process, analyze the information,

and to some extent visualize emerging or occurring crisis, are important tools that can be
further enhanced with communication technologies. (Refer to Chapter 5, Section 5-7,
Significance of Computers and Section 5-8, Public and Media Affairs Group.)
Becausethereisarangeofpossibleincidentsorcrises,stakeholdersmayfinditvaluable to
develop foresight and technologies such as Horizon Scanning which can be learned and
developed.ThisensuresthatplanningandstrategiesforCrisisManagementarekeptpro-active.

Crisis Management should also build legal capabilities and competencies on Human
Rights and related international treaty obligations of the Philippines. However good a crisis
management is, this can only be gauged within the ethical and legal standards required in
implementing them.

In complex, multi-dimensional crises, the interface between crisis management, human

rights and development concerns, as well as the criminal justice system, is highlighted.
Crisis managers increasingly face non-traditional threats, irregular threats, and organized
crime, that it is logical that they boost their legal capabilities. The promotion of the rule of
law among stakeholders in order to bring back a community to its feet is of primary
importance. This also calls for the strengthening of peace and conflict-prevention
measures and shift of focus from military-oriented missions to that of rule-of-law sectors
that are beginning to receive wider support in severalcountries.

Hence, stakeholders will achieve more if they involve communities towards seeking the
root causes of the crisis or any conflict, and if they remain faithful to their mandates to
reduce poverty and create sustainable livelihood, and thestrengthening of democracy, rule
of law, good governance, human rights and gender equality. The
community’sresilienceentailstheirongoinganddevelopingcapacitytoaccountfor its
vulnerabilities, and develop capabilities that aid them in: preventing, withstanding, and
mitigating the stress incident, recovering in a way that restores the communityto a state
ofself,

sufficiency and at least the same level of social functioning after an incident;and
Using knowledge from a past response to strengthen the community’s ability to withstand
the nextincident.

Fostering relationship with partners will not be complete without CSOs and the Media who
provide the multiplying factor, for wider public information, education, and training on Crisis
Management.

A responsible media could support government in Risk Communication where the key to
success is an entity’s ability to establish, maintain, and increase trust and credibility with
key stakeholders. This entails ensuring that while communicating with the general public,
the Communicatoralsoguardsthesecurityandsafetyofthevictimsandtherespondingunits.
Article 6 on “Crime and Crisis” of the 2007 Broadcast Code of the Philippines explicitly
states that, “The coverage of crimes in progress or crisis, such as hostage-taking or
kidnapping, shall consider the safety and security of human lives above the right of the
public toinformation”.

Some Filipino values or themes which could be inputted as messages are the following:
Bayanihan – Teamwork Filipinostyle!
Mas mabuti na maging handa kaysa magsisi. It is better to be prepared than sorry.
(Preparedness)
Magkaroon ng kamalayan at magbantay. Be aware andvigilant.
Nasa Diyos ang awa. Nasa Tao ang gawa. In God is mercy. In People is the Work. (Faith
and People’sWork)
Capabilityenhancingorbuildingoncrisismanagementcutsacrossallthephasesofthe Crisis
Management Framework. It is ideally done at the national, regional, provincial, municipal,
city, barangay, community, organization and family levels. Although the tasks could be
daunting, it helps to be aware, to coordinate and collaborate, choose facilitative leaders to
head the
bayanihanandtotrustinthegoodnessofpeople(stakeholders).FormostFilipinos,italsohelps
that there is moral-spiritual consensus to call on the Supreme Being to see us through
thetough times but there is always work to be done, things to gather and prepare. It pays
to plan and be prepared than be sorry.

\
 CHAPTER 5
APPLYING COMMAND AND
CONTROL IN CRISIS MANAGEMENT

DURATION:6 hours (2 weeks discussion)

INTRODUCTION:
AnAmericanadvisortoleaders,AnthonyRobbins,oncesaid,“toeffectivelycommunicate,
wemustrealizethatwearealldifferentinthewayweperceivetheworldandusethisunderstanding
as a guide to our communication withothers.”

In the crisis management spectrum, no matter how detailed your plan of action is, for as
long as command, control, systems of communication, and handling of information are not
clearly defined, the risk of failure is always high. Communication, as an essential tool in
Crisis Management, not only requires a sound and responsive structure (command and
control) but also a common understanding of principles being applied and terms being
used all throughout theprocess.

This chapter encompasses Command, Control, Communications, Computers, and

Information.ItintendstoeliminategapsduringthePERFORMcomponentofcrisismanagement,
toavoidorminimizefailureintheoveralleffort.Adefinitionofsomecommonlyusedtermsinthe
command, control, and communication process is offered, a sequential sketch of events
when to apply appropriate response in crisis management is drawn, and a simple and
understandable process flow chart on attaining synergy among stakeholders ispresented.

MODULE TOPICS:
FundamentalPrinciples
Command andControlSystem

LEARNING OBJECTIVES:
Discuss the encompasses command, control, communications, computers and
information.
Explain crisis management is drawn and a simple and understandable process flow chart
on attaining synergy among stakeholders is presented

LESSON 1: Fundamental Principles

Commandandcontrolistheexerciseofauthorityanddirectionbyaproperlydesignated
commander over assigned and attached agencies/units in the accomplishment of the
mission.
Commandandcontrolfunctionsareperformedthroughanarrangementofpersonnel,equipment,
communications,facilities,andproceduresemployedbyacommander/mainplanning,directing,
coordinating,andcontrollingagencies/unitsandoperationsintheaccomplishmentofthemission.

Crisis Management requires a centralized, responsive, and unambiguous channel of

communication structure referred to as the Command and Control structure. In principle,
unnecessarylayeringofheadquartersdecreasesresponsivenessandavailablemissionplannin
g time, and creates an opportunity for missionfailure.

Command
Commandistheauthoritytoeffectivelymanageavailableresourcesofrespondingunits/
agencies for the accomplishment of assignedmissions.

A commander is the one who assumes command over all components/units involved in all
actions, relative to the crisis. Commanders possess the following:

Authority – the legitimate power to exercise command and enforce obedience. Authority
can be delegated to subordinates subject to laws, rules, regulations or orders.
Responsibility – the legal and ethical obligation that a commander assumes for his actions,
omissions, or failures. It is the acceptance of burden for the consequences of the
commander’s enforcement ofdecisions.

Accountability – the state of being liable and answerable under applicable criminal, civil or
administrative laws for his actions, omissions orfailures.

A commander is responsible for what his unit does or fails to do. He can delegate his
authoritytohissubordinatecommandersbutitshouldbenotedthatwhateverwillbetheoutcome of
his mission, whether success or failure, the responsibility remains inhim.
A Commander must be able to think clearly and make good decisions quickly during crisis.
Speed and decisive actions are essential. He must be bold, aggressive, and a risk-taker.
He should issue mission-type orders that impose restrictions on subordinates to assure the
coordinated action. In essence, he must be willing to take responsibility and use his
initiative, guided by the higher commander’s intent in pursuit of mission accomplishment.
He must be in a position where he can monitor the progress of the situation. He must rely
on the experience and expertise of his unit and intervenes only when necessary.

Staffs must be able to assist commanders in those decisions and translating them into
action faster than the threat. Units must be able to respond quickly to changing situations.

Control

Control is the ability of the commander to purposefully direct or suppress, change or

adjust, and supervise subordinates’ execution of the commander’s decisions, guidance,
and intent to ensure compliance. Control may take place before, during, and after
operations, and may be exercised directly or indirectly by directive, plan, or procedure.

To make C2 happen, it must be properly organized in functionally operating facilities.

Terminologiesmustbewidelyunderstood.Commander-staffrelationshipsmustbecharacterized
bymutualtrustandrespect.TheymustpracticetheC2processregularlysothattheprocedures
areinstinctive.

The C2 process comprises of—

Coordination
Planning
Directing
Controlling

The C2 process is executed through—

Leadership
C2facilities
The planningprocess
Communication

The leadership environment affects the success of C2.

Command and SupportRelationships

In organizing units or agencies to manage an incident, one must always consider that
thereareinstanceswhenwewouldneedtoallocateavailableassetsorcapabilitiestosubordinate
commanders,whileothersneedtoberetainedatthehigherlevelforflexibilityonceopportunities
crop up. This process of allocation depends largely on the priorities set by higher
commanders. Hence, one must also consider one very important aspect – the
establishment of command and support relationships – to avoid confusion among
subordinate units or agencies, to create
effectiveworkingsynergy,andtoprovidemutualsupportbetweenunitsoragencies.Inshort,the
inter-operability principle is the primary reason forthis.
LESSO 2: Command and Control System

Command and control has two components: the Commander, and the Command and
Control (C2) System. Communication systems, computer networks and information
systemsarethecomponentsoftheC2systemthatallowcommanderstoleadfromanypointin
thecrisis.TheC2Systemsupportsthecommander’sabilitytomakedecisions,delegateauthority,
and synchronizes all actions. Moreover, the C2 System supports the ability of
commanders to
adjustplansforfutureoperations,evenwhilefocusingonthecurrentcrisis.Likewise,staffswork
withinthecommander’sintenttodirectunitsandcontrolresourceallocations.Theyarealsoalert in
spotting crises that require command decisions, and advise commanders concerning
them.
ThroughC2,commandersinitiateandintegrateallfunctionsandsystemstowardacommongoal:
missionaccomplishment.

Communication System

The existence of two-way communications enhances the command and control system. In
the absence of communication, commands may not be passed from the commander to
subordinates. Likewise, control would be impossible unless feedback in some form could
take place. Basic to any control system is the incorporation of a reliable communications
network. In reality, the more remote the commander is from the scene of action the more
dependent he becomes upon rapid, reliablecommunications.

Crisismanagementorganizationsatalllevelsmustpreparecommunicationplansinorder
toensurerapidresponse.Theyareencouragedtoconsiderintheirplanningtheinteroperabilityof
communication equipment and “redundant communication” method. This method simply
means back-up planning wherein Communication Plans must have, at the minimum, a
Primary and an Alternate means. IT (computer systems) is just one of the means of
communication. Others are through radios, telephones, cell phones, etc. In the absence of
technology, alternative means of communication are through messengers and semaphore.
Members of the crisis management organizations must incorporate into their training basic
communication skills, particularly the proper use of two-way radio transceivers and
itsprotocols.
No matter what type of communication system is adopted, whether through computer
systems or through expedient means, one of the essentials in crisis management is that
information must be relayed without delay, up to the highest and down to the lowest end-
users.

Computers

Computers provide capabilities that can help people grasp the dynamic realities of a
crisis more clearly and help them formulate better decisions more quickly. The computers
referred to in this section are basically, the information technology (IT) system that may
help enhance crisismanagement.
Key Areas of Computer-Enabled Capability

Morerobust,interoperable,andpriority-sensitivecommunications.Crisismanagement requires
robust, priority-sensitive communications systems capable of supporting interoperation
with other systems. Providing these requires communication networks that are more
resilient to disruption than today’s commercial networks, that can last longer without utility
power, that can expand capacity to meet emergency needs, that can autonomously
reconfigure themselves, that can handle the range of
communicationneedsandenvironmentalconditionsthatariseindisasters,thathave well-
defined points of interoperability, and that are able to distinguish between and properly
prioritizecommunications.

Better situation awareness and common operating picture. Situation awareness is the
ability for actors in a crisis—from national coordinators to emergency responders to the
general public — to have information about an incident, to understand what that
information means in the context of the situation and their goals, and to project patterns
and trends. The common operating picture is a shared understanding of a situation by a
group of people who need to act together to achieve common goals. The aim is to improve
a person’s ability to do his or her job moreeffectively.

Improved decision support and resource tracking and allocation. Whereas situation
awarenessprovidesdecisionmakerswithinformationrelevanttotheirtasksandgoals, decision
support focuses on assisting them in formulating prospective actions —
helpingthemunderstandandassesscharacteristicsandconsequencesofalternative
coursesofactionandfollowupondecisions,closingthefeedbackloopfromdecision to result.

Greater organizational agility for crisis management. The use of IT has enabled and driven
changes to organizational structures and processes (e.g., more distributed
decisionmaking).Agilityisatapremiumincrisis becausenoonetypeoforganization or group of
organizations is always best suited for the variety of problems that arise. Related issues
with significant IT implications include building rapport among people
whodonotshareahistoryofcooperation,andmorequicklyintegratingtheoperations of
multipleorganizations.

Better engagement of the public by supplying information and by making use of

informationandresourcesthroughwhichmembersofthepubliccansupply.Although

IT is used today to alert and inform the public before, during, and after a crisis, more use
could be made of new communications modalities, and information could be better tailored
and targeted to the needs of particular populations. More attention
shouldbepaidtotheinformationandresourcesheldbythepublicbecausemembers of the public
collectively have a richer view of a crisis, may possess increasingly sophisticated
technology to capture and communicate information, and are an important source of
volunteers, supplies, and equipment. One important factor is how to engage the entire
population, given the existence of groups with cultural and language differences and other
specialneeds.

Enhanced infrastructure survivability and continuity of societal functions. Large

crisis orevendisastersupsetphysicalinfrastructure,suchastheelectricgrid,transportation, and
health care — as well as IT systems. IT infrastructures themselves need to be more
resilient; IT can also improve the survivability and speed up the recovery of other
infrastructure by providing better information about the status of systems, and advance
warning of impending failures. Finally, IT can facilitate the continuity of disrupted societal
functions by providing new tools for reconnecting families, friends, organizations,
andcommunities.

Taking the above-discussed key areas, the Department of Science and Technology
(DOST) plays an important role in realizing these. It is advised that in planning and in
applying
IT(computers)incrisismanagement,IncidentCommandersandCMCsatalllevelsmustalways
see to it that the DOST is involved and their expertise on these matters areconsidered.

Information System

Dataaretherawmaterialsfromwhichusefulinformationaremade.Dataaremeaningless when
treated in isolation. They become information when they undergo an accepted process to
convey rationality. The purpose of an information system is to process data in aggregation
to provide knowledge or intelligence. This information may very well be data for some user
on a higherlevelwho
may,inturn,processthemtoproducemorecomprehensiveinformationandso on, until the final
user isserved.

Crowdsourcing

Today, peoples’ information dissemination is quicker than the reaction time of trained first
responders. Mobile phone users would snap pictures, record videos and text information
regarding the emergency long before the first responders even arrive. Additionally, the
global
mediawouldwidelydisseminatesuchimagesandinformation,almostimmediatelyengagingthe
nationalaudience.Thiscanbeattributedtothefactthatpeoplenowadaysarebecomingmindful
oftheirrolesin promotingsecurityandsafetywithinthecommunity.Throughthisconsciousness,
they become more prudent in exploiting technologicaladvancement.

Employing crowd support in times of crisis will provide crisis management actors other
options in gathering and collecting information essential to the success of the operation.
Referredtoascrowdsourcing,itisoutsourcingofatasktoacrowdthroughplatformsorsystems
established for the purpose. It is a way of communicating or relaying information by
providing
thecollaborativeplatformforindividualsfromdifferentsegmentsofsocietytocometogetherand
workasone.Toolsofinformationthatarebeingusedinthisconceptrangefromnewsbroadcast to
SMS, to e-mails, to Facebook and Twitter blogs, or even a hotline which is connected to
the PIO.

As a concrete example of crowdsourcing at work is a program named “Ushahidi”, which

was created in 2008 in the midst of political violence in Kenya. “Ushahidi” was used as a
platform for citizens to send text messages and e-mails. Through mapping software, data
were aggregated and helped visualize what was happening on the ground almost in real
time, from mapping ongoing violence to providing information on safehavens.

Crowdsourcingoffersnumerousadvantages.Thetrendtendstodemonstratetheinnate
resourcefulness of people, especially with the technology available. Therefore, this whole-
of- society approach will leverage different access points and will ultimately illustrate
assets — instead of deficiencies — that could be builton.

However, in applying this concept to crisis management, a caveat on the data collected.
With data flooding in, a stringent process must be established in order to capture useful
information.

Inclosing,theCommandandControlsystemisessentialinaninter-agencyeffort.Itisa system that

will enable the response structure in crisis management to work efficiently. As crisis
evolves, this system oftentimes requires adjustments or improvisation to be more
responsive to the needs of thesituation.

Command and Control system must focus on roles, rather than rank, and must provide a
clear structured mechanism for commanding large scale incidents. But the key to an
effective and efficient Command and Control system is the active involvement and
participation of all stakeholders through wider collaboration and greater cooperation, which
can also be attained through Public-PrivatePartnerships.
 CHAPTER 6
POST-ACTION AND ASSESSMENT

DURATION:6 hours (2 weeks discussion)

INTRODUCTION:
The Crisis Management Manual intends to come up with an institutional system of
handling complex crises, specifically, for Crisis Managers, ICS Commanders and Senior
Policy Makers to undertake synchronized operations and employ standardized planning
tools that are necessary for inter-agency crisis response efforts.

AspartoftheCrisisManagementprocess,thePostActionandAssessment(PAA)isthe
componentthatbeginswhentheemergencyorcrisishasbeenaddressedandthecrisisdeemed
cleared. The ICS Commander ensures all necessary Post-Action activities are undertaken
to restorenormalcy.Theendgoalofthisphaseistoensurerecoveryandidentifythestrengthsand
weaknessesincrisismanagementprocedures,sothatthosetaskedinoverseeingthesucceeding
operations can build on previous successes and/or improve fromshortcomings.

On recovery and restoring normalcy, post action and assessment (PAA) focuses on
planninginanticipationofdamage;recognitionthatresourcesareessentiallylimited,thusselectin
g
criticaloperations;analysisofcriticaloperationsandpossibleeffectsofcrisistotheseoperations;
identification of bottlenecks so that they would be dealt with selectively, to ensure
continuity of critical operations; selection of target recovery time; and setting up of one
management system and deployment of units/personnel and resources for actual
recoveryoperations.

MODULE TOPICS:
Activities in Post-ActionandAssessment
HandoverofResponsibility

LEARNING OBJECTIVES:
Discuss the Post-Action and Assessment (PAA) focuses on planning in anticipation of
damage; recognition that resources are essentially limited.

Illustrate the essential activities to be undertaken in PAA

LESSON 1: Activities in Post-Action and Assessment

Theessentialactivitiestobeundertakeninpost-actionandassessmentmayinclude,but is not
limited to thefollowing:

INVESTIGATION
LEGALACTION
REORGANIZATION
HANDOVERRESPONSIBILITY
ASSESSMENT
Forothertypesofcrisisi.e.health,economyorthoseinvolvingOFWs,possiblecourses of action
may include but is not limited to local or foreign policy review and formulation, and
evaluation of responses and supportsystems.

Investigation

Investigations include the collection of facts, and evidences for prosecution. The
investigation must seek to establish specific offenses that have been committed; how,
who, where, when and why the offenses were committed.

Legal Action

Legal Action is providing legal advice and assistance to CMCs and aims for the
prosecution of the perpetrators.

Reorganization

Reorganization is enhancing the previous system, and responding to a future crisis in a

much improved manner. Reorganization reinforces the previous crisis management
system, making it more effective and efficient, by realigning the available resources
whether human, financial or technological. Aside from personnel and other resources,
reorganization in crisis management also includes the gathering of data and information to
further improve the system,
byshiftingtoastrongerapproachinachievingeffectivenessandefficiency.Italsocompletesthe
cycle of continuity in Crisis Management by implementing proactive measures, learning
from the lessons of the past, and reinforcing the identified weaknesses.

Assessment

Assessment is a comprehensive process of analysis, interpretation, evaluation and review

of all applied systems and procedures used by the CMC/ICS, taking into account
recommendations on potential actions that shall be prioritized in the hand-over stage. It is
designed to provide the CMC with independent and authoritative evaluations of the
CMC/ICS’ initial response to the resolution of the crisis, and assist them in their long-term
planning efforts.
Itisintendedtoprovidebetterfocusonprogramareasinwhichanimprovedcrisisresponsecan be
achieved, and assure the most efficient use of available resources in futurecrisis.

All reports generated by the CMC in the entire crisis management process shall be an
integral part of the final and comprehensive assessment report, which shall be submitted
to the decision makers and/or to REHABILITATION AND RECOVERY managers.

Thefullydetailedanddocumentedreportontheactions/response/decisionsoftheCMC
inhandlingthecrisisincidentisbasedontheaccountsprovidedbytheresponderswhohandled
thecrisisevent.Typically, thePAAreportisnotaccomplishedimmediately.Duetotheamountof
detailthatisneededforthePAAreport,ittakesasignificantlylongeramountoftimetocomplete the
report.

Toestablishauniformsystemofreportingthatwillcapturealltherequiredinformationfor
assessment, a template of the Comprehensive Assessment. It contains the following:

Planning
Mission
Description of the AffectedArea
LegalInformation
Operation
PublicResponse
Crimes andArrests
Death andInjuries
PropertyDamage
Personnel
Deployment of Crisis ManagementPersonnel
Logistics

LESSON 2: Handover of Responsibility

Handover of responsibility is the transfer of responsibility by the CMC to an appropriate
organizationorentityfortherecoveryandrehabilitationphase.Theprocessrequirespreparation
and the procedures are asfollows:

Understanding/describing the crisis/emergency that transpired. Know the needsand

priorities that should have been addressed, and the consequent issues that may
havehinderedresolution,andtheskillsandknowledgeusedinaddressingthecrisis,
e.g the supposed system that was adapted from this manual;
Knowing the most appropriate agency, department or organization that is most capable of
taking over theresponsibility;
Providinginformationbriefingstotheacceptingagency/departmentonbackgroundof the case
and key areas ofresponsibility;
Explaining the scarcity and availability of resources experienced during crisis and how to
avoid a recurrence, as well as how communication between agencies or
departmentsflowed;
Ifnecessary,endorsingtheacceptingagencyordepartmenttootherworkingpartners; and
Stepping back and being a shadow to the acceptingagency/department;

When the accepting agency or department is capable, and all information and
communication is in place, the Handover is considered complete. The possibility of
maintaining communication even after the handover is essential.

Post-ActionandAssessmentisessentiallyaguideddiscussionofon-goingornear-end operation
that enables its responders to discover for themselves what went well, what did not, and
why while recovery efforts are ongoing. The generated information from the discussion
and
assessmentcanbeutilizedtovalidatecurrentproceduresand/ortoproposeforbetterprocesses.

FOURTEEN (14) MANAGEMENT CHARACTERISTICS OFICS

ICS is based on fourteen (14) proven management characteristics, each of which

contributes to the strength and efficiency of the overall system. These are as follows:

CommonTerminology
The use of common terminology in ICS will allow diverse incident management and
support organizations to work together across a wide variety of incident management
functions
and hazard scenarios. This common terminology applies to the following:
Organizational Function
Major functions and functional units with incident management responsibilities are named
and
defined.Terminologyforthefollowingorganizationalelementsisstandardandconsistent,namely
, Command, Planning, Operations, Logistics and Administration andFinance.

ResourceDescriptions
Major resources—including personnel, facilities, and major equipment and supply items—
that support incident management activities are given common names and are “typed” with
respect to their capabilities as follows: “Assigned”, “Available” and “Out-of-Service”. This is
to help avoid confusion and to enhance interoperability.

Incident Facilities
Common terminology is used to designate the facilities established in the vicinity of the
incident area that will be used during the course of the incident.

Modular Organization
The ICS organizational structure develops in a modular fashion based on the size and
complexity of the incident, as well as the specifics of the hazard environment created by
the incident. Responsibility for the establishment and expansion of the ICS modular
organization ultimately rests with Incident Command, which bases the ICS organization on
the requirements of the situation.

Management by Objectives
Management by objectives is communicated throughout the entire ICS organization and
includes:
Knowing agency policy anddirection.
Establishing incidentobjectives.
Developing strategies based on incidentobjectives.
Establishing specific, measurable tactics or tasks for various incident management
functional activities, and directing efforts to accomplish them, in support of defined
strategies.
Documenting results to measure performance and facilitate correctiveactions.

Incident ActionPlan
Centralized,coordinatedincidentactionplanningshouldguideallresponseactivities.An
Incident Action Plan (IAP) provides a concise, coherent means of capturing and
communicating
theoverallincidentpriorities,objectives,strategies,andtacticsinthecontextofbothoperational
and supportactivities

Span ofControl
Manageable span of control is key to effective and efficient incident management.
Supervisors must be able to adequately supervise and control their subordinates, as well
as communicate with and manage all resources under their supervision.

Incident Facilities andLocation

Various types of operational support facilities should be established in the vicinity of an
incident, depending on its size and complexity, to accomplish a variety of purposes. The IC
will direct the identification and location of facilities based on the requirements of the
situation. ICS
facilitiesshouldincludeIncidentCommandPosts,Bases,Camps,StagingAreas,masscasualty
triage areas, point-of- distribution sites, and others asrequired.

ResourceManagement
Maintaining an accurate and up-to-date picture of resource utilization is a critical
component of incident management and emergency response. Resources to be identified
includepersonnel,teams,equipment,supplies,andfacilitiesavailableorpotentiallyavailablefor
assignment orallocation.

IntegratedCommunications
Incident communications should be developed through the use of a common
Communicationsplantoensureinteroperabilityandconnectivitybetweenandamongoperational
and support units of the various agencies involved. Preparedness planning should
therefore endeavor to address the equipment, systems, and protocols necessary to
achieve integrated voice and datacommunications.

Establishment and Transfer of Command

The command function must be clearly established from the beginning of incident
operations. The agency with primary jurisdictional authority over the incident designates
the individual at the scene responsible for establishing command. When command is
transferred,
theprocessmustincludeabriefingthatcapturesallessentialinformationforcontinuingsafeand
effectiveoperations.

Chain of Command and Unity ofCommand

Atalltimesduringdisasteroperations,chainofcommandandunityofcommandshallbe observed.
This is to ensure clarity in reporting relationships and eliminate the confusion caused by
multiple, conflictingdirectives.

UnifiedCommand
In incidents involving multiple jurisdictions, a single jurisdiction with multiagency
involvement,ormultiplejurisdictionswithmultiagencyinvolvement,aUnifiedCommandapproac
h should be applied to allow agencies with different legal, geographic, and functional
authorities and responsibilities work together effectively without affecting individual agency
authority, responsibility, oraccountability.

Accountability
Effective accountability of resources at all jurisdictional levels and within individual
functionalareasduringincidentoperationsisessential.Tothisend,Check-In/Check-Out,Incident
Action Planning, Unity of Command, PersonalResponsibility, Span of Control, and
Resource Tracking must be adhered to within theICS.

Dispatch/Deployment
Resources should respond only when requested or when dispatched by an appropriate
authority through established resource management systems. Resources not requested
must refrain from spontaneous deployment to avoid overburdening the recipient and
compounding accountability challenges
Information and IntelligenceManagement
Theincidentmanagementorganizationmustestablishaprocessforgathering,analyzing,
assessing, sharing, and managing incident-related information andintelligence.