Module 2. E-book
Module 2. E-book
What is IASC?
The Inter-Agency Standing Committee (IASC) is the primary mechanism for inter-agency coordination of
humanitarian assistance.
It is a unique forum involving the key UN (e.g. WHO, UNICEF, UNFPA) and non- UN humanitarian partners
(e.g. Save the Children, Médecins Sans Frontières (MSF) International, Action Against Hunger).
The IASC provides a platform for thematic areas such as Accountability to Affected Population (AAP),
Humanitarian Financing, Risk, Early Warning and Preparedness, among others.
The Guidelines help to plan, establish, and coordinate a set of minimum multi-sectoral responses to
protect, support and improve people’s mental health and psychosocial wellbeing in the midst of an
emergency.
The IASC MHPSS Reference Group was established in December 2007. Its main task is to support and
advocate for the implementation of the Guidelines. The Reference Group consists of more than 30 mem-
bers, and fosters a unique collaboration between NGOs, UN and International Agencies and academics,
promoting best practices in MHPSS.
Though a lot of work has been done to address this, a significant gap has been the absence of a multi-
sectoral, inter-agency framework that enables effective coordination, identifies useful practices, flags
potentially harmful practices and clarifies how different approaches to mental health, and psychosocial
support complement one another.
The Guidelines reflect the insights of practitioners from different geographic regions, disciplines and
sectors, and reflect an emerging consensus on good practice among practitioners.
The core idea behind the Guidelines is that, in the early phase of an emergency, social supports are
essential to protect and support mental health and psychosocial wellbeing.
The Guidelines also recommend selected psychological and psychiatric interventions for specific
problems.
These core principles were adopted by the local MHPSS Guidelines and adapted to the Philippine con-
text. In the creation of the National Guidelines on MHPSS or NDRRMC Memorandum No. 62 which will be
discussed more thoroughly in succeeding sections, several components of the IASC Guidelines on
MHPSS were integrated.
Memo 62 adapted the Core Principles of the IASC Guidelines on MHPSS to the local Philippine context.
These are presented as the “Basic Principles Governing Good Practices in MHPSS” which include:
Affirms human rights and equity
The provision of MHPSS must promote the human rights of all affected persons and protect indi-
viduals and groups who are at a heightened risk of human rights violations and discrimination
across gender, age groups, religious beliefs, and ethnicity according to identified needs.
Emphasizes the principle of doing no harm.
Humanitarian aid can also cause unintentional harm and it is important that services in emergency
situations do not pose any kind of danger to the survivor’s wellbeing.
Ensures participation
In most emergency situations, a significant number of people exhibit sufficient resilience to partici-
pate in relief and reconstruction efforts. Maximizing the participation of the affected population
allows them to regain their sense of ownership and agency.
Provides multi-layered support
People are affected in different ways and require different kinds of support during emergencies.
There must be a layered system of complementary support that meets the needs of different
groups.
Promotes integrated support system
Programs and activities must be integrated as much as possible in order to avoid creating a highly
fragmented care system. For example: having stand alone services dealing only with people with a
specific diagnosis as PTSD
Culturally sensitive and appropriate
Programs and activities that are culturally appropriate and mindful of gender, age, and religious
beliefs result in effective, creative, and innovative approaches to providing MHPSS in emergencies
Promotes wellbeing or ginhawa of survivors/victims/workers
Ginhawa is synonymous to the concept of overall wellbeing.
Resilience- and strength-based
Resilience is the remarkable capacity of individuals to withstand and overcome challenges of all
kinds and bounce back stronger and wiser in the face of great adversity and live relatively normal
lives. Strength-based approaches recognize the affected people’s availability of inner strength to
3. Sendai Framework15
15 Sendai framework for disaster risk reduction 2015–2030. In: UN world conference on disaster risk reduction, 2015 March 14–18, Sendai, Japan. Geneva:
United Nations Office for Disaster Risk Reduction; 2015. Available from: http:// www.wcdrr.org/uploads/Sendai_Framework_for_Disaster_Risk_ Reduc-
tion_2015-2030.pdf
It is the outcome of stakeholder consultations initiated in March 2012 and inter-governmental negotia-
tions held from July 2014 to March 2015; It was subsequently adopted by UN Member States on 18
March 2015 at the Third UN World Conference on Disaster Risk Reduction in Sendai City, Miyagi Prefec-
ture, Japan. The Philippines was well-represented during the negotiations and have expressed support
to the four priorities of action. It signals the time to review and refine existing policies such as the Na-
tional Disaster Risk Reduction and Management Act in order to further strengthen institutions, both na-
tional government agencies and LGUs, not just to mitigate disasters and respond to them but also inte-
grate developmental framework into the process of recovery, rehabilitation, and reconstruction.
The Sendai Framework also places strong emphasis on resilient health systems by the integration of
disaster risk management into health care provision at all levels, and by the development of the capacity
of health workers in understanding disaster risk and applying and implementing disaster risk approaches
in health work16
National health systems can be strengthened by promoting and enhancing the training capacities in the
field of disaster medicine; and by supporting and training community health groups in disaster risk re-
duction approaches in health programmes.
Priority 4. Enhancing disaster preparedness for effective response and to “Build Back Better” in
recovery, rehabilitation and reconstruction
The growth of disaster risk means there is a need to strengthen disaster preparedness for
response, take action in anticipation of events, and ensure capacities are in place for effective
response and recovery at all levels. The recovery, rehabilitation and reconstruction phase is a criti-
cal opportunity to build back better, including through integrating disaster risk reduction into devel-
opment measures.
Priority 4 specifically calls for the enhancement of recovery schemes to provide psychosocial sup-
port and mental health services for all people in need.
Known as “An Act Strengthening the Philippine Disaster Risk Reduction and Management System,
Providing for the National Disaster Risk Reduction and Management Framework and Institutionalizing
the National Disaster Risk Reduction and Management Plan, Appropriating Funds Therefor and for other
Purposes.”
This law Repealed Presidential Decree No. 1566 enacted in 1978 and transformed the Philippines’ disas-
ter management system from disaster relief and response towards disaster risk reduction (DRR).
RA 10121 acknowledges the need to:
With RA 10121, local government units (LGUs), civil society organizations (CSOs), and the community
itself are empowered as key partners in disaster risk reduction. This diagram shows how RA 10121 pro-
vides for integrated, coordinated, multi-sectoral, inter-agency, and community-based approach to disas-
ter risk reduction
The NDRRMP in is in conformity with the National Disaster Risk Reduction and Management Framework
(NDRRMF) shown below:
Disaster Prevention and Mitigation: Reduce vulnerability and exposure of communities to all ha-
zards; enhance capacities of communities to reduce their own risks and cope with the impacts of
all hazards
The “Children’s Emergency Relief & Protection Act,” or An Act Mandating the Provision of Emergency Re-
lief and Protection for Children Before, During, and After Disasters and other Emergency Situations is the
first of its kind anywhere in the world.
It is the Country’s national policy to protect the particular needs of children before, during, and after cri-
sis through the following 8 Action Plans:
A Comprehensive Emergency Program to protect children and support their immediate recovery.
Heightened surveillance against child trafficking and other violence against children in the after-
math of disasters and calamities.
A system of restoring civil documents for children and their families to better access services and
protect against exploitation.
Increased participation of children in disaster risk reduction (DRR) planning and post-disaster
needs assessments.
Less disruption of education activities with the reduced use of schools as evacuation centers and
the proper use of temporary learning spaces.
Improved care and steps for family tracing and reunification for unaccompanied and separated
children.
Better data collection and reporting related to the affected children—to better understand and
respond to their specific needs.
Child-centered training of all responders for community/barangay leaders, school personnel and
rescuers.
ACTIVITY 1
Imagine that you are observing two groups that are working on the following case scenario. One of the
groups has elected four members of their group to be the Health Coordinator, Education Coordinator,
Camp Coordinator, and Logistics Coordinator. The other group did not elect any coordinator. Describe
what maybe your observation of the two groups. Justify your answers.
Scenario:
You are in the middle of a coordination meeting. It was reported that Organization ABC will be send-
ing out donations to the Municipality of Kapayapaan after Typhoon Masigasig hit the island munici-
pality. Their donations include hygiene kits, kits for building temporary learning spaces, food packs
and support kits for MHPSS service providers. The donations will pass through the port of Kasaysa-
yan which is 20 minutes away by boat from the municipality. There are five big evacuation camps in
the island municipality.
Action:
Create a distribution plan based on the given situation. After 5 minutes, present your plan to the rest
of the group.
Coordination is a crucial mechanism in order to ensure the effective delivery of services. If we are not
aware of our roles and responsibilities, it will be difficult for us to determine what we need to do and how
to effectively do it. We have varied understanding of our roles and responsibilities during emergencies.
Some of us are not fully aware of what DRRMCs are and what we should be doing during disasters.
Emergency responders are expected to have undergone basic DRRM Training organized by your local
DRRMOs. In this session, we will give a basic overview/refresher of the DRRMCs and the cluster ap-
proach in the Philippines.
In 1991, the Local Government Code paved the way for the increase of the calamity fund from 1% to 2%.
In line with the United Nations thrust in pursuing a reform program that seeks to improve the effective-
ness of humanitarian response by ensuring greater predictability, accountability and partnership, the
cluster approach is now being implemented and institutionalized in the Philippine Disaster Management
System. This was contained in the National Disaster Coordinating Council (NDCC) Circular dated May 10,
2007 entitled “Institutionalization of the Cluster Approach in the Philippine Disaster Management Sys-
tem, Designation of Cluster Leads and Their Terms of Reference at the National, Regional and Provincial
Level”.
17Sendai framework for disaster risk reduction 2015–2030. In: UN world conference on disaster risk reduction, 2015 March 14–18, Sendai, Japan. Geneva:
United N a t i o ns O f f ic e for D is a s t e r R is k Re d u c t i o n; 2015. Av a il a b l e from: http:// w w w . w c d r r. o r g / up l o a d s /
Sendai_Framework_for_Disaster_Risk_Reduction_2015-2030.pdf
The NDRRMC
The National Disaster Risk Reduction & Management Council (NDRRMC) is the highest organized and
authorized body for Disaster Risk Reduction and Management (DRRM) in the Philippines. Established by
virtue of Republic Act 10121 in 2010, the NDRRMC is composed of various government, non-government,
civil sector and private sector organizations.
Within the NDRRMC, four committees are established to deal with the four thematic areas set forth in the
NDRRM Plan (NDRRMP), the NDRRM Framework (NDRRMF) and the National Disaster Response Plan
(NDRP).
Following RA 10121, the overall lead or focal agency for each of the four priority areas are the vice-
chairpersons of the NDRRMC as seen in the following:
The Cluster Approach allows the government to (1) designate cluster leads in all the areas of activity, (2)
define leadership roles among government cluster leads in crafting operational strategies throughout the
phases of disaster management, and (3) identify deliverables at the regional and provincial level.
What is a “Cluster”? A cluster is a group of agencies (international & national) that are interconnected by
their respective mandates, and that come together around a set of humanitarian interventions in a com-
mon area, for purposes of synergies, surge, effectiveness, efficiency, and accountability.
According to the NDRP18, NDCC Circular No 2 of 2008 identified 8 Clusters that will facilitate all coordina-
tion needed in the provision of the humanitarian assistance. But through a series of disasters, the cluster
approach was later adopted for response activities of the national agencies for their respective response
operations prior to the provision of humanitarian assistance. It was later observed that the Cluster ap-
proach proved effective in providing assistance to the affected population during response operations.
Based on RA 10121 and the NDRP, these are the lead and member agencies for each cluster.
NDRP Clusters
The NDRP prescribes the relevant activities on how the disaster response shall be conducted as aug-
mentation or assumption of response functions to the disaster affected LGUs. The contents of the NDRP
also include identifying roles and responsibilities of organizations/institutions during disaster/
emergency phase.
The same 8 Clusters were adopted during the preparation of the NDRP. The objective of the adoption is
to have a seamless coordination system with the international humanitarian assistance Cluster Groups
during disaster response operations. Activation of the Response Cluster is determined by the NDRRMC.
Harmonized MHPSS: Module 2. MHPSS Framework: Concepts and Policies 17
The organization structure of the Response Cluster is shown in the figure below.
National Level
Ensure the inclusion of humanitarian partners in the cluster taking
stock of their mandates and programme priorities
Establish and maintain appropriate humanitarian coordination
mechanisms at the national level
Attend to priority cross-cutting cutting issues
Perform needs assessment and analysis
Promote emergency preparedness
Initiate planning and strategy development
Promote application of standards
Conduct monitoring and reporting
Raise advocacy and lead resource mobilization
Conduct training and capacity building
Provincial Level
Develop baseline database of provincial demography sectoral data and other basic information to
facilitate rapid needs assessment of affected areas, timely mobilization of resources, and delivery
of urgent assistance to the right beneficiaries through the clusters.
An important link in the national-local chain are the Regional Disaster Risk Reduction and Management
Councils (RDRRMCs) and the Local DRRMCs. The structure of the latter is as follows:
Coordination function
Memo no. 62 highlights the importance of Coordination as a cross-cutting functions across all emergen-
cy responders. As part of preparedness, all agencies are expected to establish and strengthen coordina-
tion mechanisms for inter-sectoral MHPSS at all levels. Upon the activation of the clusters, different
agencies are expected to constantly communicate with each other, share information and data, coordi-
nate the provision of services based on agency mandates. Inter-cluster coordination plays a critical role
19This definition or description is applicable only if national and regional level clusters are both activated at the same time. There have been several
events where regional level clusters were activated but none at the national level. The roles and responsibilities of the cluster at national or subnational
levels are the same, appropriate and applicable to the relevant level (WHO)
ACTIVITY 2
What do you think are the benefits of a coordinated response? Cite your experiences in working with the
clusters in case you have any.
We have now reached the end of Module 2. Some of the key messages from this module are:
A basic policy framework provides structure to mental health and psychosocial support, ensuring
its consistent and systematic delivery.
Most disasters and emergencies are managed by the DRRMCs at different levels depending on the
severity and magnitude using the principles of the incident command system (ICS) and the cluster
approach.
Additional References
1. Republic Act 10121 - National Disaster Risk Reduction and Management Act
2. Republic Act 10821 - Children’s Emergency Relief and Protection Act
3. Inter-Agency Standing Committee Guidelines on Mental Health and Psychosocial Support
(MHPSS) in Emergency Settings
4. National Disaster Response Plans for Earthquakes and Tsunamis, Consequence Management and
Hydro-Meteorological Hazards