National Crisis Management Core Manual 2012

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(2) Cover Page Literature. • The Causal Loop of Global Economic Risks. – Illustrates the virally emergent problems spawning from each crisis. – Shared inter-organizational tribulations; as well as the need for a harmonized crisis response.. • The Chain. – Signifies Interconnected Strength – The unique virtue of shared power where the whole will eventually fall upon its most fragile link.. • The Stylized Paper Dolls. – Collaboration, collective security, accountability and responsibility of the Global Community.. 2 table of contents.

(3) NATIONAL CRISIS MANAGEMENT CORE MANUAL. 3 table of contents.

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(9) Amendment Certificate 1. Proposals for amendment or additions to the text of this manual should be made through the normal channels to the primary proponent, the National Security Council Secretariat/ National Security Adviser. 2. It is certified that the amendments promulgated in the under-mentioned amendment list have been made in this manual.. Amendment List Number. Amended by (Printed Name and Initials). Date. 1. 2. 3. 4. 5. 6. 7. 8. 9. 10.. vi table of contents. Date of Amendment.

(10) RECOMMENDATION FOR AMENDMENTS ______________________________________ __________________________________ _____________________________ (Originating Agency) SUBJECT:. ____________________ (Date). Recommendation for Changes. TO: _________________________ _________________________ _________________________ The following recommendation is submitted for improvement of ____________________________________________________________________ (Long Title) _________________________________ (Short Title) . _________________________________ Page. _________________________________ Article Para No. . _________________________________ Line Sentence. _________________________________ Figure No.. Comment:. Recommendation: . vii. _______________________________ (Signature) table of contents.

(11) PREFACE. On March 22, 2011, President Benigno S Aquino III issued a memorandum to the National Security Adviser, to organize an inter-agency working group that would review and revise the 2000 Crisis Management Manual, and would harmonize all government crisis management manuals with the revised manual. Secretary Cesar P. Garcia Jr., NSA, organized a Project Management Team and undertook a series of inter-agency workshops and conferences, researches, interviews with subject-matter experts, and focus group discussions, for the crafting of the National Crisis Management Core Manual (NCMCM) or the Core Manual. Purpose The purpose of the Core Manual is to provide a general framework of courses of actions that will guide government agencies in dealing with emerging and existing threats and crises of varying characteristics. Specifically, it has the following objectives: • To establish uniform terminologies used in crisis management, vis-à-vis RA 10121 (PDRRMC) and other international organizations; • To achieve a uniform Situation Awareness process; • To attain uniformity in the formulation of inter and intra-agency policies, contingency plans and crisis action plans for crisis management; • To identify Post-Action and Assessment activities; • To provide awareness of the principles in building and enhancing capabilities of government agencies for crisis management; and • To identify levels of authority, responsibility, and accountability in times of crisis. Scope and Applicability. The Core Manual covers all functional areas and phases in government agencies’ crisis management efforts. These comprise strategic context, situation awareness, responses to emerging threats and crises, post-action and assessment, enhancing and building crisis management capabilities and applying Command and Control in crisis management.. Given this scope, it is expected that government agencies would align their respective crisis management plans and operational manuals upon promulgation of the Core Manual, without prejudice to specific systems or courses of actions inherent in respective agencies that are deemed vital to their proper functioning. User Information. The primary proponent of the Core Manual is the National Security Council Secretariat/ Office of the National Security Adviser through the Crisis Management Support Secretariat (CMSS), which is responsible for its evaluation and revision upon directives of the National Security Adviser (NSA). The Core Manual is the product of inter-agency consultations and research work facilitated by the CMSS. Items in existing crisis management plans/systems from various agencies found useful by the CMSS were adopted and incorporated in the Core Manual.. viii table of contents.

(12) Rescission. All previously NSC-issued publications and manuals directly inconsistent with the Core Manual are hereby rescinded. In compelling situations or contexts, however, the Core Manual or parts of it can be revised at any given time upon instructions from the Cabinet Cluster on Security through the NSA or from the President of the Republic of the Philippines. Gender. The Core Manual adheres to the principle of gender equality in all of its sections and intentions. Unless this publication states otherwise, ostensibly masculine terms and phraseologies do not refer exclusively to “men.”. ix table of contents.

(13) GLOSSARY Administrative Control (ADCON) - is a direction or exercise of authority over subordinate or other organizations in respect to administration and support, including organization of Service forces, control of resources and equipment, personnel management, unit logistics, individual and unit training, readiness, mobilization, demobilization, discipline, and other matters not included in the operational missions of the subordinate or other organizations 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, and the verb sense, in fact, stresses community spirit-- working for free the way we have always known the “bayanihan” spirit to be. “Bayani” as concept and word can have any of these three applications: “bayani” as a person; “kabayanihan” as a heroic act; and “bayani” as a heroic group, community or nation. The core value in being “bayani” is recognition of and deference to the interest of what 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 historical moments, he/she must have all or at least most of the following: (1) determination; (2) perseverance; (3) courage; (4) diligence; (5) enthusiasm; (6) humility; and (7) inspiration and effect of inspiring others. 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, cooperation and communication; organization; training; sustainability; exercises; equipment; community awareness and support Capability Enhancement - required activities for stakeholders who have experienced responding or pre-empting the occurrence of a crisis Capacity - refers to the ability of the people, organizations and society as a whole to prepare for, respond to and recover from the impact of crises or disasters Chain of Command - is the succession of leadership from a superior to a subordinate through which command is exercised. Also called command channel. x. table of contents.

(14) 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 common goals for the collaboration; Expertise; Teamwork strategies; Open communication; Motivated partners; Means to implement and sustain the collaborative effort; and, An action 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 economically productive routines, and helping affected communities participate actively in a substantial amount of rebuilding activities Concept of Operations - (1) is a verbal or graphic statement, in broad outline, of a commander’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 additional clarity of purpose; (2) is a clear and concise statement of the line of action chosen by a commander in order to accomplish his mission — describes how the commander sees the actions of each of his units fitting together to accomplish the mission Contingency Planning - is a forward planning process in a state of uncertainty, in which scenarios and objectives are agreed, managerial and technical actions defined, and potential response systems put in place in order to prevent or better respond to an emergency or critical situation Coordination - is an exchange of information to inform and integrate, synchronize, and de-conflict operations. Coordination is not necessarily a process of gaining approval but is most often used for mutual exchange of information Coordination, Cooperation, Communication - known as the 3Cs in Crisis Management; the mechanisms pursuing common goals needed to be established at the lowest levels, to close in any gaps in any short fall of capabilities when needed and avoid turfing issues, and the inconsistencies in the overall crisis management/ emergency operations and contingencies Course of Action (COA) - (1) is a plan that would accomplish, or is related to, the accomplishment of a mission; (2) is the scheme adopted to accomplish a task or mission Crisis - a crisis or emergency is a threatening condition that requires urgent action or response Crisis Action Planning - is based on current events and conducted in time-sensitive situations and emergencies using assigned, attached, and allocated forces or units and resources. xi. table of contents.

(15) Crisis Capabilities - capability to anticipate potential crisis and prepare for them; provide accurate information; pre-empt situations; and, if this fails, provide timely response; and determine long-term solutions 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, integration and orchestration of government and public efforts towards the control of crisis Critical Incident - is any incident/event, whether man-made or natural, that requires 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 centre 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-scale disaster Disaster - a serious disruption of the functioning of a community or society involving widespread human, material, economic or environmental losses and impacts, which exceeds the ability of the affected community or society to cope using its own resources 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”. xii table of contents.

(16) Documentation - a record of contingency, emergency or crisis management plans, equipment maintenance, skills training as well as risk and vulnerability assessment for review and future reference; studies of successful sustainable crisis and recovery efforts focus on three 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 Emerging or Weak Signals - either influence the enfoldment of one underlying process or another, or be a symptom of this evolution. It also signifies the appearance of new processes 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 a crisis 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 in order to assist in determining deficiencies and needs for additional or updated equipment or skills enhancement, especially in the area of an integrated or inter-agency response 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 forecasting plus insight, requiring deep understanding of a particular subject (Kousa, 2010). It is a systematic, participatory, future-intelligence-gathering and medium-to-long-term vision-building process aimed at present-day decisions and mobilizing joint actions (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. Gap analysis consists of (1) listing of characteristic factors (such as attributes, competencies, performance levels) of the present situation (“what is”); (2) cross listing factors required to achieve the future objectives (“what should be”); and then (3) highlighting the gaps that exist and need to be filled Growth Stage - is the period when the system imports material and energy to enable it to survive and meet growth needs/goals. Each stage of growth is marked by a beginning and an endpoint. xiii table of contents.

(17) Hard Target - one which is guarded or has considerable security; this means that a terrorist attack runs the risk of being intercepted often with potentially lethal force. Examples of ‘Hard’ targets would include military bases, and political organizations and high ranking politicians and heads of state such as Presidents 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 the ground Inhibitors - are variables that have negating effect Inter-agency Contingency Planning Process - is a procedure in the formulation of a contingency plan involving more than one department, bureaus or units of the executive branch and other stakeholders. An inter-agency contingency plan (IACP) includes three essential elements: Situation Awareness, Strategy, Command and Control Interagency Operations - any action which combines the human and material resources of two or more independent organizations, be they governmental, international, or private, in prosecution of a common objective Interoperability - the ability of systems, units, or forces to provide services to and accept services from other systems, units, or forces and to use the services so exchanged to enable them to operate effectively together 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 Local Disaster Risk Reduction Management Fund (LDRRMF) - not less than five percent (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) or stand-by fund for relief and recovery programs so that the situation and living conditions of people in communities or areas stricken by disasters, calamities, epidemics, or complex emergencies may be normalized as quickly as possible Loss and Damage Control Management - preventing or controlling incidents by protecting the overall safety of people, equipment, material and the environment. xiv table of contents.

(18) Mass Casualty - any large number of casualties produced in a relatively short period of time, usually as the result of a single incident such as a military aircraft accident, hurricane, flood, earthquake, or armed attack that exceeds local logistical support capabilities Mission - the commander’s expression of what the unit must accomplish and for what purpose. The who, what, when, where, and why that must be accomplished Mission Statement - a short paragraph or sentence describing the task and purpose that clearly indicate the action to be taken and the reason therefore. It usually contains the elements of who, what, when, and where, and the reason therefore, but seldom specifies how 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 Futures Research and/or Horizon Scanning methodologies (refer to Situation Awareness) to meet desired level of capability, so that the long-term development projects can be properly scheduled and funded 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 unstructured that it fails to support the 3Cs system of Crisis Management, or too rigid that it disables stakeholders from responding at all 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 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 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. xv table of contents.

(19) take actions to eliminate, reduce or control the risks posed by such conditions; risk analysis approach can identify the requisite response activities, and a logically ordered sequence for their implementation; generally accepted to consist of risk assessment, risk management, and risk communications Risk Assessment - evaluation of a recognized dangerous condition to determine the risk or threat 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 control management 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 operational factors, and making decisions that balance risk cost with benefits; encompasses all those activities that are required to reach and implement decisions on risk reduction or elimination. Once a risk has been identified and characterized, 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, control measures involve reducing the probability of occurrence or severity of an incident Risk Management And Acceptable Risks - all activities that are required to reach and implement 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, control measures involve reducing the probability of occurrence or the severity of an incident. “Acceptable risk” - a conscious decision must be made at the proper level whether 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 Soft Target - one which has little or no military protection or security and hence is an easy option for a terrorist attack. This includes commercial shopping centres, power stations, and leisure facilities such as football grounds and sports stadiums 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 integration of crisis management planning among communities, people’s organizations, and civil society organizations (CSOs), and between the local and national policy making and operations systems. xvi table of contents.

(20) 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 sustained through planning at the short, medium and long-terms, skills enhancements, and equipment procurement 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 to crime prevention. It is directed at denying or limiting access to a crime target through the use of physical barriers such as fences, gates, locks, electronic alarms and security patrols Task - the specific activity to be performed by the unit while conducting a form of tactical operation or a choice of manoeuvre. It is the minimum essential effects to accomplish the purpose Threat - an indication of something undesirable coming; a person or thing as a likely cause 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 - aims to enhance specific agencies tasked for Crisis Response; comprised of individual 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 - the evaluation and classification of casualties for purposes of treatment and evacuation. It consists of the immediate sorting of patients according to type and seriousness of injury, and likelihood of survival, and the establishment of priority for treatment and evacuation to assure medical care of the greatest benefit to the largest number TTP’s (Tactics, Techniques and Procedures) • Tactics – the art and science of employing available means to win battles and engagements • Techniques – the methods used by troops and/or commanders to perform assigned missions and functions, specifically, the method of employing equipment and personnel • Procedures – the standard and detailed courses of action that describe how to perform a task Turning Point - the point at which a very significant change occurs; a decisive moment Volunteer Service Organizations - a local or foreign group that recruits, trains, deploys and supports volunteer workers to programs and projects implemented by them or by other organizations or any group that provides services and resources, including but not limited to, information, capability building, advocacy and networking for the attainment of the common good. xvii table of contents.

(21) Vulnerability - the characteristics and circumstances of a community, system or asset that make it susceptible to the damaging effects of a hazard; is a set of conditions resulting from physical, social, economic and environmental factors which increase susceptibility to losses from impact of hazards Vulnerability Analysis - identifies the level of threat that exists, given the potential vulnerability of the community or area concerned; identification of potential scenarios as well as weaknesses in the system that may come into play for an incident to escalate Weak Signals - are phenomena, trends, issues, factors, or forces that may initially have negligible impact but are too important to be totally ignored Wildcards - are low-probability, high-impact events that can drastically alter situations and assumptions, and catch everyone by surprise should they occur. xviii table of contents.

(22) TABLE OF CONTENTS Amendment Certificate Preface Glossary Table of Contents List of Annexes List of Figures and Tables . vi viii x xix xxi xxii . Introduction 1. Strategic Context 4. National Policy Guidelines 7. Key Principles in Crisis Management 9. The National Crisis Management Framework 12 . Chapter 1: Crisis Management Organizations 14. 1-1. 1-2 . 1-3. 1-4. 1-5 . 1-6. 1-7. Crisis Management Committee Incident Command System Working Synergy National Level Crisis Management Committees Local Level Crisis Management Committees (Regional, Provincial, Municipality/City, and Barangay) Crisis Management Organizations Abroad Crisis Escalation Protocol . 14 19 24 26 32 33 33. Chapter 2: Situation Awareness . 40. 2-1 2-2 2-3. 40 42 43. Chapter 3: Crisis Prevention Measures 46. 3-1 3-2 3-3. Policy Process in Crisis Management Inter-Agency Contingency Planning Crisis Action Plan . 46 48 51. Chapter 4: Building and Enhancing Crisis Management Capabilities . 54. 4-1 . 4-2 . 4-3 . 4-4 . Strategic Situation Awareness Operational Situation Awareness Tactical Situation Awareness . Principles in Capabilities Building and Enhancement Principles in Conducting Needs Assessments/ Vulnerabilities’ Assessment of Capabilities to Determine Effective and Efficient Crisis Management Principles in Capabilities Enhancement or Building Plans Principles in Sustaining Capability . xix. 55 56 60 60 table of contents.

(23) 4-5 Principles in Prevention and Mitigation of an Incident from Becoming a Crisis. 4-6 Principles in Evaluating Crisis or Emergency Operations . 4-7 Principles in Making Multi-Year Capabilities Development Plan . 4-8 Principles in Annual Capability Development Increment . 4-9 Principle for Capability Resource Management . 4-10 Principles in Fostering Stakeholders’ Relationships . Chapter 5: Applying Command and Control In Crisis Management. 5-1 Fundamental Principles . 5-2 Command and Control System . 62 62 63 64 64 65 68 68 70. Chapter 6: . Post-Action and Assessment 74. 6-1 6-2 . Conclusion 78. References 158. Activities in Post-Action and Assessment Handover of Responsibility . xx table of contents. 75 76.

(24) LIST OF ANNEXES A. Summary of AFP/DND International Agreements . 79. B. Other relevant Policies related to Crisis Management . 88. C Sketch on Incident Command System Deployment at Scene of 91. Incident C-1 ICS of the NDRRMC . 92. D Government Media Platforms 106 E Steps in conducting Situation Awareness (SA) 108 F. Sample Checklist for Tactical Situation Awareness (SA) . 123. G. Inter-Agency Contingency Planning Toolbox . 127. H. Inter-Agency Contingency Planning Format . 134. I. Summary of Principles Arranged According to the Components 137 of the Crisis Management Framework . J Recovery and Redevelopment Experiences based from 139. International Disasters K Command and Support Relationship 153 L Proposed Action and Assessment Report 156. xxi table of contents.

(25) LIST OF FIGURES AND TABLES Fig. 1-1. Ideal Composition of a Crisis Management Committee at Any Level. 15. Fig. 1-2.1. ICS Basic Organizational Structure . 19. Fig. 1-2.2. Organizational Structure of PMAG within the ICS . 23. Fig. 1-4.1. ONSA-PSR-CMSS-EXECOM Command Relationship . 32. Fig. 1-7.1. Conditions/Trigger Points in the Handover of Responsibilities . 37. Fig. 2-1.1. SA at the Strategic, Operational and Tactical Levels . 43. Fig. 2-1.2. SA Processes at the Strategic, Operational and Tactical Levels . 44. Fig. 3-1.1. Policy Process . 46. Fig. 3-1.2. Policy to Contingency Planning Flowchart . 48. Fig. 3-2.1. Inter-Agency Contingency Planning Flowchart . 50. Fig. 3-3.1. Crisis Action Planning Procedure . 51. Fig. 3-3.2. Guide to Making a Tentative Operational Plan . 52. Fig. 4.1. Principles of Building and Enhancing Capabilities . 54. Table 1-1.1. Role of the C, CMC . 15. Table 1-3.1. Delineation of CMC’s and ICS Authority, Responsibility and Accountability. 26. Table 1-4.1. Components of the EXECOM/NCMC . 27. Table 1-4.2. Members of the EXECOM/NCMC Designated as C-OPR . 27. Table 1-7.1. Conditions/Situations with Particular CMC . 34. Table 1-7.2. List of Available Resources that a CMC may Utilize at its Own Discretion. 35. Table 1-7.3. Sample Matrix to be Considered in the Relinquishment of Responsibilities. 36. Table 4-6.1. Critical Success Factors . 62. xxii table of contents.

(26) INTRODUCTION. The 2009 United Nations International Strategy for Disaster Reduction (UNISDR) defines crisis or emergency as a threatening condition that requires urgent action.. A single crisis may spawn another crisis elsewhere, or several crises could happen in different places at the same time. A complex emergency could also happen where “the cause of 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 Management Act).. 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 delivery of basic services.” Worse, mishandling of crisis may even lead to disaster or loss of lives.. However, crises may not always “go down” towards “deterioration” or “disintegration” but could also “go up” towards resolution, often temporary, and/or higher order transformation as shown in the following figure:. 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 responsible for events/activities pertaining to and/or leading to deterioration/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 General Roy A. Cimatu (Ret.) and the Ambassadors of the Philippine Embassy in the Middle East. 1. table of contents.

(27) 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 relying on the Philippines’ contingency plan for the protection of their countrymen, and in becoming instrumental for the restoration of the Kuwaiti government.. Government response efforts to prevent or mitigate the effects of crisis are guided by Article II, Section 4 and 5 of the Constitution, which states that the prime duty of the Government 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 overall crisis management effort is embodied in the Preamble of the Constitution. Public leaders, 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 political jurisdiction.. 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, an agency/department/unit may need to consider working with other agencies 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 and functions, and processes and concepts in crisis management, should help us go beyond our ‘silos.’ This Core Manual, with its six chapters, aims to harmonize all crisis management functions of government agencies/departments and stakeholders toward thinking and moving coherently and strategically over any type of crisis.. Chapter 1 discusses the prescribed Crisis Management Organizations. It started with the 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 escalation protocol is established.. Chapter 2 discusses detecting crisis through Situation Awareness (SA) at the strategic, operational and tactical levels. At the strategic level, SA is developing foresight of 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.. Chapter 3 talks about undertaking responses to emerging crises: policy formulation and inter-agency contingency planning—and during crisis—crisis action 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. 2 table of contents.

(28) documentation.. Chapter 5 entitled Applying command and control in crisis management covers the principles on command and control system, communication system, computer drives and information system.. Chapter 6, “Post-Action and Assessment,” discusses crisis recovery and evaluation efforts. This chapter describes actions and procedures aimed to assist policy and decision makers in improving or refining crisis response efforts.. 3 table of contents.

(29) STRATEGIC CONTEXT. The 21st security environment, in which crises of varying forms and proportion are expected to emerge, is said to have evolved from a purely military concept to a more comprehensive, multidimensional idea shared by sectors outside the military establishment. Security, therefore, is now perceived to be more complex and wide-ranging. It has veered away from mere security of the state to the more comprehensive and complicated security of communities/individuals. In global, regional, and national security settings, a multitude of perspectives must be employed to capture the intimate interrelations of one issue/threat to others.. This manual intends to proceed with national crisis management mindful of the nature, dynamics, and interrelation of 21st century threats. This chapter aims to briefly showcase a number of security threats that could abruptly or gradually give rise to a plethora of crises, which the government and the people should be capacitated to deal with.. Dynamics and Interrelations of 21st Century Security Threats. This figure is lifted from a publication of the World Economic Forum in January 2011 entitled Global Risks 2011 Sixth Edition. It is an excellent illustration of a comprehensive and multidimensional appreciation of the security threats of our time. It depicts issues and threats of various natures and how they interact with each other. It identifies economic disparity and global governance failures as the key drivers of risks while also providing insights into perceived likelihood and impact that are very useful in strategic-planning and national crisis management.. 4. table of contents.

(30) The Security Environment. The 21st Century strategic environment poses emerging and re-emerging security threats and concerns at the global, regional, and national levels. These security issues encompass both traditional and non-traditional concerns, involving actors that are not anymore limited to states/ governments. Another key characteristic about these 21st Century security concerns is their dynamic interrelations that put tremendous pressure on the government to be more insightful and creative in the performance of its functions. This validates a more comprehensive and multidimensional conception of crisis and security.. Threats at the global arena such as terrorism and militant extremism exacerbate anxieties of world governments towards weapons of mass destruction. The global economic crisis also contributes to rising public/labor discontent towards governments and large corporations, making people more restive. Such restiveness could spell gargantuan shifts in the political landscape as clearly evidenced by the Arab Spring. Cyberspace is also fast becoming an arena of great insecurities as more and more aspects of humanity’s day-to-day affairs are hinged upon this technology. The most “global” perhaps of all threats is climate change, which threatens all fabrics of humanity’s existence. Yet, the global arena remains largely a stage of interactions between and among states, whose geostrategic interests sometimes clash.. The regional environment (East Asia/Asia Pacific), meanwhile, lays witness to a very gradual yet steady thrust towards community-building. However, countries in the region are faced with many transnational problems, and quite numerous of these predicaments are sea-borne. Border disputes between and among states are still high in the agenda, making their military establishments perennially alert. Such disputes also highlight to a very acute level the greatpower competition, which smaller countries are very anxious to manage or cushion. The claws of terrorism, coupled with highly porous and disputed borders, present serious strains to the defense and law enforcement policies and capacities of governments in the region.. These international dynamics are felt, in varying degrees, at the national level. Exploiting the vulnerabilities brought about by communist insurgency and the Southern Philippines Secessionist Groups (SPSG). The menace of terrorism threatens to worsen the socio-economic and political malaise of the country that gave rise to insurgency and secessionism in the first place. There is also an increasing recognition of the fusion of criminality and terrorism, with one reinforcing the other. Furthermore, natural disasters constitute challenges to the country’s sociopolitical and economic resiliency while overpopulation and over-urbanization take their toll on the government’s capacity to deliver basic social services.. 5 table of contents.

(31) The figure below attempts to showcase global environment trends vis-a-vis the Philippine situation.. Sample Causal Loop depicting the local security environment in relation to regional and global trends: blue lines for emerging global trends, black for regional and yellow for the PH environment. The colors indicate what dimensions they fall under: Green for environment, Blue for social, Gray for terrorism/political, Beige for geo-political, Pink for techno-scientific and Light Gray for economic. The Red blasts/figures represent factors that contribute to each situation or outcome.. The National Security Policy (NSP) further discusses the 21st security environment in its sections on the external and internal environment and on other strategic issues. The NSP could be viewed at the official gazette: http://www.gov.ph/2011/08/18/national-security-policy-2011-2016.. The complexity of the 21st century security environment necessitates a response that should involve all sectors in the community in order to be successful in preventing or mitigating the negative effects of crises. The succeeding section presents the crisis management organizations at the national level and the general principle in organizing the same at the regional down to the barangay level.. 6 table of contents.

(32) NATIONAL POLICY GUIDELINES. Crisis management policies should be anchored in the 1987 Constitution that spells out the ways and means to achieve the end that is embodied in the Preamble. Stated thus: We, the sovereign Filipino people, imploring the act of Almighty God, in order to build a just and humane society and establish a Government that shall embody our ideals and aspirations, promote the Common good, conserve and develop our patrimony and secure to ourselves and our posterity the blessings of independence and democracy under the rule of law and a regime of truth, justice, freedom, love, equality, and peace, do ordain and promulgate this Constitution.. -Preamble, 1987 Constitution. Crisis management policies are further guided by the following: Legislation, a law which has been promulgated (or enacted) by Congress; Executive Proclamations or Orders or Decrees issued by the President; Treaties, a formal agreement between two or more states, as in reference to terms of peace or trade, binding among all parties to the treaty; and Supreme Court decisions. Specifically:. 1. SEC 3, ARTICLE II of the Philippine Constitution, which states that the Armed Forces of the Philippines is the protector of the people and the State. Its goal is to secure the sovereignty of the State and the integrity of the national territory. SECTION 5, ARTICLE II states that one of the prime duties of the Government shall be the maintenance of peace and order, the protection of life, liberty, and property, and promotion of the general welfare are essential for the enjoyment by all the people of the blessings of democracy.. 2. The National Security Policy, a statement of principles that should guide national decision-making and determine courses of action to be taken in order to attain the state or condition wherein the national interests, the well being of our people and institutions, and our sovereignty and territorial integrity are protected and enhanced.. 3. Executive Order 773 series 2009, further reorganizing the Peace and Order Council, with specific responsibilities that include contributing to the strategies of the NSC that would effectively respond to peace and order problems, coordinating and monitoring peace and order plans, providing a forum for inter-disciplinary dialogue and deliberation of major issues and problems affecting peace and order, providing a forum for dialogue and deliberation of major issues and problems affecting peace and order, including insurgency, recommending measures which will improve or enhance peace and order and public safety in their respective areas of responsibility, including anti-insurgency measures, and recommending measures to converge and orchestrate internal security operations efforts of civil authorities and agencies, military and police.. 4. Republic Act 8551, Philippine National Police Reform and Reorganization Act of 1998 is an act providing for the reform and reorganization of the Philippine National Police and for other purposes, amending certain provisions of Republic Acts 6900 and 75 entitled, “An Act establishing the Philippine National Police under a re-organized department of the interior and local government, and for other purposes”.. 7 table of contents.

(33) Although RA 8551 mentions the PNP reform and reorganization, it also discusses the relief of the DILG from its responsibility on matters involving the suppression of insurgency and other serious threats to national security. The Armed Forces of the Philippines shall be responsible for matters involving suppression of insurgency and the Philippine National Police will provide support, except in cases where the President shall call on the PNP to support the AFP in combat operations.. 5. Republic Act 9372, Human Security Act of 2007, “An Act to Secure the State and Protect Our People From Terrorism”, to protect life, liberty, and property from acts of terrorism, to condemn terrorism as inimical and dangerous to the national security of the country and to the welfare of the people, and to make terrorism a crime against the Filipino people, against humanity, and against the law of nations. It further states that the State recognizes that the fight against terrorism requires a comprehensive approach, comprising political, economic, diplomatic, military, and legal means duly taking into account the root causes of terrorism without acknowledging these as justifications for terrorist and/or criminal activities. Such measures shall include conflict management and post-conflict peace-building, addressing the roots of conflict by building state capacity and promoting equitable economic development.. 6. Treatise – A summary of International Agreements involving the DND/AFP are found in Annex A.. Other policies related to crisis management can be found in Annex B. Crisis managers are encouraged to strengthen existing and future crisis-related policies or laws, identify crucial linkages (or perhaps incompatibilities) among these statutes, and reflect on the comprehensive and multi-dimensional approach of crisis management.. 8 table of contents.

(34) KEY PRINCIPLES IN CRISIS MANAGEMENT. The key principles in crisis management are rooted in the 1987 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: a. Whole-of-nation approach; b. Strengthened inter-agency collaboration; c. Efficient Situation Awareness; d. Tiered response to incidents; e. Adaptable operational capabilities; f. Unity of effort through Unity of Command; g. Readiness to act; and h. 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-ofNation-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.. The goals of a strengthened inter-agency coordination are comprehensive: gain complete situation awareness; formulate integrated government policy guidance; make agency planning activities transparent to other agencies; increase individual accountability for implementation of assigned agency responsibilities; and anticipate and keep pace with events during operations. To accomplish these goals, inter-agency crisis management organizations have been established. Inter-agency functions and processes are likewise prescribed in the succeeding chapters.. C. 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.. 9. table of contents.

(35) . 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 can also 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. The government must pursue an effective public information campaign. The public must be informed of the nature of the threat and its effects, and of government actions that prevent the. 10 table of contents.

(36) 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.. In compelling situations where the government is confronted with the absence of statutes/ policies to address serious and potentially devastating emergencies and crises, the President 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.. 11 table of contents.

(37) THE NATIONAL CRISIS MANAGEMENT FRAMEWORK (NCMF). The National Crisis Management Framework provides a comprehensive approach to understanding the components of a crisis or the 5Ps of crisis management: Predict, Prevent, Prepare, Perform and Post-Action and Assessment. The illustration below shows the escalation of crisis—from convergence of indicators to the occurrence of an incident, critical incident and a full-blown crisis—and the interaction of the 5Ps of crisis management.. Although the 5Ps are interrelated crucial components of effective crisis management, these components do not happen in phases, whether sequential or consequential. Addressing complex or multi-dimensional crises require activities under Predict, Prepare and Prevent to happen simultaneously and in a continuous manner even while executing activities under Perform or responding to an ongoing crisis or conducting Post-Action and Assessment activities.. National Crisis Management Framework Appropriate Crisis Management Committee (National, Regional, Provincial, City/Municipal). Predict – Predictions are attempts to remove uncertainty from the future. The Predict component, as prescribed in the Core Manual, is undertaken through Strategic, Operational and Tactical Situation Awareness processes. Strategic SA is producing foresight and conveying strategic warnings through Horizon Scanning or Strategic Forecasting; It scans the environment, identifying weak signals, drivers, inhibitors, wildcards, threats, hazards, risks, opportunities and vulnerabilities, among others, develops foresight and conveys strategic warnings. Operational and Tactical SA is producing detailed reports against a specified threat, describing the operating environment where a threat or a crisis could emerge; the threat or the crisis itself, its potential of becoming a crisis; and current efforts and capabilities of agencies/departments addressing the threat or crisis.. 12. table of contents.

(38) Prevent – Crisis prevention is better than cure. Prevention is a deliberate action aimed at avoiding future harm by addressing its causes. It is closely related to mitigation, which accepts that a potentially harmful incident cannot be prevented, but harmful consequences arising from it can be minimized by precautionary measures. Two (2) preventive measures are described in the Core Manual: the first involves a long-term strategy that is expected to yield effects over years; and, the other is operational in nature (e.g. target hardening). Prepare – Preparedness is essential for effective response. It covers six (6) essential activities: Plan, Organize, Train, Equip, Exercise and Evaluate and Improve. The figure below illustrates the preparedness cycle.. The Preparedness Cycle. Simulation and desktop exercises evaluate the effectiveness of preparations, bring out flaws and weaknesses, and enable corrections and remedies to be effected, to heighten levels of readiness of systems, procedures, organization, equipment and logistics, to better cope up with actual crisis. Perform – Performance is the actual implementation of contingency plans when a crisis occurs, despite the pro-active measures undertaken. Once a crisis occurs, priorities shift from building or enhancing capabilities to employing resources to save lives, protect property and environment, and preserve the social, economic and political structure of the jurisdiction. Post-Action and Assessment – Post-Action is a component which begins when the crisis has been addressed and the situation is deemed clear. It is in this phase where the organization is returning to business as usual. Post-Action activities seek ways to evaluate and improve prevention, preparation and the actual execution.. 13 table of contents.

(39) CHAPTER 1 CRISIS MANAGEMENT ORGANIZATIONS. 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 coordinated at the national level, but also coordinated and implemented in an integrated manner 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 those decisions. Third, crisis often involve government agencies and other stakeholders that are not normally party to the national security policy-making structure. Any crisis procedure must not only include these agencies and stakeholders, but must also ensure that their perspectives are adequately integrated into the overall government response.. Section 1-1 The Crisis Management Committee (CMC). The CMC is a governing body that takes decisive actions to resolve crisis or emergency. It is primarily concerned with the formulation of crisis management policies, integration and orchestration of government and public efforts towards the control of crisis or incidents.. Members of the CMC are both elected and appointed public officials who have a special responsibility to safeguard society from the adverse consequences of crisis. They are thus concerned with the entire crisis spectrum.. 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, correctly handles the accountability question. Learning refers to the actual learning from a crisis; it is limited but it should be noted that a crisis often opens a window of opportunity for reform – for better or for worse.. Ideally, a CMC must comprise of a Chairperson and Point-Persons for medical, legal, logistics, community relations, public safety, and social services, as well as 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 CMCs are: a. Provide and mobilize available resources through an established inter-agency resource sharing protocol.. 14 table of contents.

(40) b. Coordinate inter-agency crisis management efforts; c. Ensure that operational demands during crisis are met and all actions are coordinated and complementary; and d. Establish an accessible communication lines so that reliable and timely information are received and disseminated to appropriate levels.. Once the CMC is activated, they shall now perform their roles and functions in accordance 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 all levels:. Figure 1-1 Ideal Composition of a Crisis Management Committee at Any Level 1-1.1 The C, CMC has a special responsibility to safeguard society from the adverse consequences of crisis. This entails accomplishing tasks under Predict, Prevent, Prepare, Perform and PostAction and Assessment. In this regard, the C,CMC shall designate a specific office to undertake or monitor crisis management efforts (i.e. The Disaster Risk Reduction Management Office may be designated to monitor crisis management efforts). The following are the responsibilities of the C,CMC vis-à-vis the components of crisis management:. CM Component. Responsibility of the C,CMC. Predict. • Responsible for scanning emerging crises and conveying strategic warnings through Horizon Scanning. Likewise, it shall be responsible for monitoring actions taken with regard to warnings issued.. 15 table of contents.

(41) Prevent. • Formulates policy and contingency plan, based on worst case scenarios, which include an appropriate rules of engagement and strategic communication plan, among others, in relation to a warning issued on an emerging crisis and monitors the preparations of the agency/department or units to ensure effectiveness in preventing and mitigating the effects of a crisis.  When appropriate, crafts an operational manual based on the agency/department or unit’s contingency plan prepared in accordance with concepts and processes defined in the Core Manual. • Ensure the participation and assistance of appropriate agencies/ departments during inter-agency/department policy formulation and contingency planning  The inter-agency/department Contingency Plan will identify and define the roles of each agency/department and establish command and control during crisis. • Encourages subordinate offices/agencies/departments/units within the offices/agency/department/units to understand and internalize their roles, both in the intra-agency/department and inter-agency/ department process, in addressing emerging and current threats or crises.. Prepare. • After the formulation of plans, undertake or monitors other “Prepare” activities such as organizing, training, equipping, exercising and evaluating/improving. This includes regular conduct of simulation exercises to test and evaluate contingency plans. • Systematically undertakes capability building and enhancement, such as resource identification/mapping and allocating funds.. Perform. • Identifies the appropriate Contingency Plan that will be implemented in anticipation of an emerging or current threat. • If the emerging or current threat was not addressed by the CONPLAN which resulted to an incident developing into a crisis:  Activate the Crisis Management Committee and initially conducts all-source situation awareness on the incident.  Declare the level of crisis, depending on the situation and the prevailing procedures of the concerned agency/department or unit.  Activate the Incident Command System (ICS) and calls on the pre-designated Incident Commander (IC).. 16 table of contents.

(42)  Issues decisions and guidance to the IC including the Rules of Engagement (for Media, Incident Commanders, Crowd/External Public, etc.).The IC shall:  Report directly to the Chairperson of the CMC for guidance and instructions.  Issue Warning Order to available forces/units within the ICS. Request the CMC for additional forces when necessary.  Formulate a tentative operation plan (See Figure 3-3.2). Review contingency plan, incident action plans and other plans or manuals related to the incident while formulating a tentative plan.  Initiate movement of forces/units which includes establishment of Incident Command Post, Staging Areas and Bases, and Media Centers, etc.  Conduct inspection on the area of operation. At this point the IC may recommend to the C,CMC whether the situation needs to be elevated or he may request for special units needed to accomplish the objective.  Adjust the tentative operational plan if necessary.  Brief and recommend the best Course of Action (COA) to the C,CMC.  If time permits, conduct rehearsal on the forces/units in accordance to the COA selected by the C,CMC.  Implements and executes plan of action.  Ensures compliance of instructions down to the lowest level.  Designates a Public Information Officer (PIO) who shall undertake the following functions:  Coordinates with the Head/s Communication Group with regard to strategic communication (STRATCOM) plan and existing protocols on crisis management.  Reviews strategic communication plan and ensures that protocols are followed.  Shall receive information from the designated IC in relation to the incident.  Seeks clearance from C,CMC prior to the release of information to the public/media.  Coordinates with higher level authority or other agencies, whether local or international, for support, if necessary.  Allocates and dispatches resources to the Incident Commander.  Select and, if possible, affix signature on the selected COA.. 17 table of contents.

(43)  Exercise general supervision over the actions of the Incident Commander.  Provides expert advice to the next higher CMC or to the President and the EXECOM/NCMC.  Informs the Department of Foreign Affairs (DFA) if incident involves foreign nationals (whether as offender/s or victim/s).  The DFA shall ensure that the Philippine government shall act in accordance with existing multilateral and bilateral understanding or agreements. In the absence of such agreements, it shall ensure that the Philippine government maintains close contact and coordination with the foreign government whose national or property is involved.  The DFA shall also monitor the impact of crisis on the country’s diplomatic relations and international image and implement measures or recommend actions to address issues that may arise.  The DFA, as needed, shall implement measures to generate international support for the Philippines.  Be prepared to receive guidance from higher authorities. Post Action and Assessment. Table 1-1.1. • In coordination with the Incident Commander, relinquishes responsibility to appropriate agency. • Undertake or monitor post action activities. • Systematically provides Post Action and Assessment Reports to the next higher CMC or the EXECOM/NCMC.. 18 table of contents.

(44) Section 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 such incidents.. ICS includes procedures to select and form temporary management hierarchies to control 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 longer exist.. ICS is interdisciplinary and organizationally flexible to meet the following management challenges: a. Meets the needs of a jurisdiction to cope with incidents of any kind or complexity (i.e. it expands or contracts as needed) b. Allows personnel from a wide variety of agencies to meld rapidly into a common management structure with common terminology c. Provide logistical and administrative support to operational staff d. Be cost effective by avoiding duplication of efforts and continuing overhead e. Provide a unified, centrally authorized, legitimate emergency organization. For an overview of the deployment of the ICS at the scene of incident, refer to Annex C. Likewise, a detailed discussion on the Incident Command System of the NDRRMC, as approved by its Executive Committee for implementation through Memorandum Circular Nr. 4, s. 2012, is hereto attached as Appendix C-1 of this Core Manual.. Figure 1-2.1 ICS Basic Organizational Structure. 19. table of contents.

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