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504570810 CP Guidebook as of January 2020

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Bachelor of Secondary Education Major in English (BSED ENGLISH 3)

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Southern Masbate Roosevelt College

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CONTINGENCY

PLANNING GUIDEBOOK

As of January 2020

INTRODUCTION

The Philippines, situated along the Pacific Ring of Fire and the Typhoon Belt, is prone to natural hazards such as typhoons, earthquakes, volcanic eruptions and tsunamis. Furthermore, human-induced hazards such as crimes, terrorism and bombing also threaten the lives of the communities. Given our disaster risk profile, Republic Act (RA) 10121, otherwise known as the “Philippine Disaster Risk Reduction and Management Act of 2010,” was enacted on 27 May 2010. Prior to the enactment of RA 10121, government actions relative to disaster management had been largely concentrated on the response phase where most of the resources are devoted to the needs of the affected population in the aftermath of a disaster. Now, the new law paved the way for the institutionalization of the proactive Disaster Risk Reduction and Management or “DRRM” approach, which is the “systematic process of using administrative directives, organizations, and operational skills and capacities to implement strategies, policies and improved coping capacities in order to lessen the adverse impacts of hazards and the possibility of disaster.” As provided for in RA 10121, one of the known DRRM mechanisms that we can use is Contingency Planning (CP). It is used to establish preparedness measures and arrange response priorities ahead of time prior to a certain disaster. CP works well together with other DRRM tools to help ensure the achievement of safer, adaptive and disaster-resilient communities towards sustainable development. With the growing significance of contingency planning, it has become applicable not only in DRRM but also in Crisis Management (CM), which “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”. As such, CP has been considered as one of the operationalizing tools of the National Crisis Management Core Manual (NCMCM) of 2012, as provided for by the Executive Order (EO) No. 82 series of 2012. In this context, an effort has been made to integrate the contingency planning process for managing natural and human-induced hazards. Development of Contingency Planning in the Philippines CP was introduced in the Philippines in early 2002 with the support of United Nations High Commissioner for Refugees (UNHCR). Then Vice President and Department of Social Welfare and Development (DSWD) Secretary, Gloria Macapagal- Arroyo, met with former UNHCR High Commissioner Sadako Ogata to discuss the plight of internally- displaced persons (IDPs) in Mindanao. UNHCR sent a mission to assess possible technical assistance to the Government of the Philippines for the management of IDPs. Among the recommendations of the UNHCR was the organization of an Emergency Management Training Program for the National Disaster Coordinating Council (NDCC).

One of the significant activities under this program was the publication of “Contingency Planning for Emergencies: A Manual for Local Government Units,” which was the product of the CP workshop held in Mindanao. Through the following years, contingency planning gained attention not only in managing displaced population but also in handling emergencies. Hence, CP was rolled out to other parts of the country and has gained an important role, not only as a preparedness plan for human- induced hazards, but also as a disaster reduction strategy. However, the circumstances regarding emergencies became even more complex with the phenomenon of the “new normal”, characterized by the increasing frequency, magnitude and scope of disasters, as well as the blurring of division between the disasters caused by natural and human-induced hazards. Hence, the United Nations Economic and Social Commission for the Asia and the Pacific (UN ESCAP) sent a technical expert in the Philippines to help the government revisit the CP process. Through the assistance of the technical expert, the National Disaster Risk Reduction and Management Council (NDRRMC) through the Office of Civil Defense (OCD), the Department of the Interior and Local Government (DILG), and the Department of Social Welfare and Development (DSWD), in collaboration with the National Security Council (NSC), worked to enhance the contingency planning manual of the NDCC, with the objective of integrating the response arrangements for natural and human-induced hazards into one reference. This collaboration resulted to the development of the CP Guidebook to be used by all DRRM and CM practitioners. The Contingency Planning Guidebook The CP Guidebook serves as a handy reference for planners in preparing the contingency plan as a basis for actions before and during an emergency. It provides guidance on how stakeholders can develop coping strategies to minimize the adverse consequences of a certain hazard. The contents of the CP Guidebook are consistent with the existing policies and guidelines of the NDRRMC, NSC, and other relevant institutions. It has been formally adopted through the NDRRMC-NSC Joint Memorandum Circular No. 1 s 2016. As such, the CP Guidebook contributes to better understanding of the roles of responsibilities of individuals, offices or agencies involved in DRRM and CM to improve their capacities to anticipate and respond. To assess the effectiveness of CP, the OCD partnered with the Polytechnic University of the Philippines in 2018 to conduct the study entitled “Effectiveness of Contingency Planning during Typhoon Lawin (Haima) in selected LGUs in Region I and CAR.” Based on the study’s findings, there is a need to develop a less technical CP template with direction- setting and action-oriented elements. Recognizing the importance of the study’s findings, the OCD, as the agency mandated to standardize the CP process, updated the CP Guidebook and simplified the associated forms and tools. The updated CP Guidebook will be implemented in 2020 and beyond.

Contingency Planning: a management process that analyzes specific potential events or emerging situations that might threaten society or the environment and establishes arrangements in advance to enable timely, effective and appropriate responses to such events and situations. Crisis: also known as emergency; a threatening condition that requires urgent action or response Crisis Management (CM): 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 Committee (CMC): a governing body that undertakes CM activities and takes decisive actions to resolve crisis or emergency. Its powers and functions are defined in the NCMCM 2012. Disaster: a serious disruption of the functioning of a community or a 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. Disasters are often described as a result of the combination of: the exposure to a hazard; the conditions of vulnerability that are present; and insufficient capacity or measures to reduce or cope with the potential negative consequences, Disaster impacts may include loss of life, injury, disease and other negative effects on human, physical, mental and social well-being, together with damage to property, destruction of assets, loss of services, Social and economic disruption and environmental degradation. Disaster Impacts: immediate consequences of a disaster requiring extraordinary response Disaster Risk: the potential disaster losses in lives, health status, livelihood, assets and services, which could occur to a particular community or a Society over some specified future time period. Disaster Risk Reduction: the concept and practice of reducing disaster risks through systematic efforts to analyze and manage the causal factors of disasters, including through reduced exposures to hazards, lessened vulnerability of people and property, wise management of land and the environment, and improved preparedness for adverse events. Disaster Risk Reduction and Management (DRRM): the systematic process of using administrative directives, organizations, and operational skills and capacities to implement strategies, policies and improved coping capacities in order to lessen the adverse impacts of hazards and the possibility of disaster. Prospective disaster risk reduction and management refers to risk reduction and management activities that address and seek to avoid the development of new or increased disaster risks, especially if risk reduction policies are not put in place.

Disaster Risk Reduction and Management Council (DRRMC): organized and authorized body of government agencies, to include the civil society organizations and private sector, mandated to undertake DRRM activities from the national to local levels. The composition, powers and functions of the DRRMC are defined in RA 10121. Early Warning Signs: observable or science-based information that will indicate the unfolding of an event or incident. Emergency Indicators: quantifiable thresholds that signal whether a situation is under control and whether there is a need for urgent remedial action. Emergency Operations Center (EOC): a designated facility that is staffed and equipped with resources to undertake multi-stakeholder coordination, manage information, and facilitate resource mobilization in anticipation of and/or to support incident operations. Exposure: the degree to which the elements at risk are likely to experience hazard events of different magnitudes. Goal: an observable and measurable end result having one or more objectives to be achieved within a more or less fixed timeframe. Hazard: a dangerous phenomenon, substance, human activity or condition that may cause loss of life, injury or other health impacts, property damage, loss of livelihood and services, social and economic disruption, or environmental damage Human-Induced Hazard: a significant incident due to human interventions resulting in acts of terrorism, destabilization, criminal activities, industrial accidents, disruption of normal day-to-day activities, and other related emergencies that require prompt intervention to contain the incident, mitigate the effects, and normalize the situation. Incident Command System (ICS): a standard, on-scene, all-hazard incident management concept that can be used by all DRRMCs member agencies and response groups. It allows its users to adopt an integrated organizational structure to match the complexities and demands of single or multiple incidents without being hindered by agency or jurisdictional boundaries. Incident Management Team (IMT): a team composed of Command Staff and General Staff who will take the lead in ICS implementation. Mitigation: the lessening or limitation of the adverse impacts of hazards and related disasters. Natural Hazard: natural process or phenomenon that may cause loss of life, injury or other health impacts, property damage, loss of livelihoods and services, social and economic disruption, or environmental damage.

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 can adversely affect the welfare and well-being of the people. Triggering Factors: factors that could cause the unfolding of an event. Vulnerability: the characteristics and circumstances of a community, system or asset that make it susceptible to the damaging effects of a hazard. Vulnerability may arise from various physical, social, economic, and environmental factors such as poor design and construction of buildings, inadequate protection of assets, lack of public information and awareness, limited official recognition of risks and preparedness measures, and disregard for wise environmental management.

ACRONYMS

CBMS: Community Based Management Information System CLUP: Comprehensive Land Use Plan CM: Crisis Management CMC: Crisis Management Committee CP: Contingency Planning CSO: Civil Society Organization DRR: Disaster Risk Reduction DRRM: Disaster Risk Reduction and Management DRRMC: Disaster Risk Reduction and Management Council DRRMF: Disaster Risk Reduction Management Fund EO: Executive Order EOC: Emergency Operations Center GAA: General Appropriations Act HADR: Humanitarian Assistance and Disaster Response IMT: Incident Management Team IC: Incident Commander ICS: Incident Command System IHA: International Humanitarian Assistance INGO: International Non-Government Organization IRR: Implementing Rules and Regulations JMC: Joint Memorandum Circular LDRRMF: Local Disaster Risk Reduction and Management Fund LGU: Local Government Unit MC: Memorandum Circular NCMCM: National Crisis Management Core Manual NDRP: National Disaster Response Plan NDRRMC: National Disaster Risk Reduction and Management Council NGA: National Government Agency NGO: Non-Government Organization PDNA: Post-Disaster Needs Assessment

OVERVIEW OF CONTINGENCY PLANNING

Definition of Contingency Planning

CP is a scenario-based plan for a specific and projected natural and/or human-induced hazard. It aims to address the impacts of the hazard to people, properties, and environment; and/or to prevent the occurrence of the emerging threats through the arrangement of timely, effective, appropriate, and well-coordinated responses as well as the efficient management of resources. The UNHCR Handbook of Emergencies defines contingency planning as “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.” The United Nations International Strategy for Disaster Reduction defines CP as a management process that analyses disaster risks and establishes arrangements in advance to enable timely, effective and appropriate responses. RA 10121 describes contingency planning as “a management process that analyzes specific potential events or emerging situations that might threaten society or the environment and establishes arrangements in advance to enable timely, effective and appropriate responses to such events and situations.”

References of Contingency Planning

At the international level, the conduct of CP is our commitment to the Sendai Framework for Disaster Risk Reduction (SFDRR) 2015-2030. Specifically, in Paragraph 33, Priority 4 of the Framework, it states that “.. and local governments shall prepare or review and periodically update disaster preparedness and contingency policies, plans and programs...” The conduct of CP in the Philippines is also required by RA 10121. Specifically, in Rule 6, Section 4 (3) of the Implementing Rules and Regulations (IRR) of the law, it states that “The Provincial, City and Municipal DRRMOs or BDRRMCs, in coordination with concerned national agencies and instrumentalities, shall facilitate and support risk assessments and contingency planning activities at the local level.” Recognizing the need to develop contingency plans for both natural and human- induced hazards, it is indicated in item 6.1 of the NDRRMC-NSC JMC No. 1, 2016 that “All DRRMCs at all levels, CMCs at the local level, and individual government departments, bureaus, agencies, offices, units, and instrumentalities shall formulate contingency plans for natural and/or human-induced hazards appropriate to their areas in accordance with the prescribed Contingency Planning Guidebook.” Moreover, in item 6.1, “Other governance stakeholders, including civil society organizations and the private sector, are

enjoined to adopt the Contingency Planning Guidebook for formulation of their respective contingency plans.” Further, under the NDRRM Plan 2011 – 2028, Thematic Area 2: Disaster Preparedness, Outcome 10, it is also indicated that there shall be “Developed and implemented comprehensive national and local preparedness and response policies, plans, and systems.” The formulation of CP is also embodied in various national issuances, policies, programs and guidelines: - Executive Order No. 82, s 2012: Operationalizing the Practical Guide for National Crisis Managers and the National Crisis Management Core Manual; Establishing National and Local Crisis Management Core Manual; Establishing national and Local Crisis Management Organizations; and Providing Funds Therefor - NDRRMC Memorandum No. 04, s 2012: Implementing Guidelines on the Use of Incident Command System as an On-Scene Disaster Response and Management Mechanism under the Philippine Disaster Risk Reduction and Management System - NDRRMC Memorandum No. 23, s 2014 : National Disaster Response Plan for Hydro- meteorological hazards - NDRRMC Memorandum No. 43, s 2016: Guidelines on the Interoperability of the Incident Management Teams and Response Clusters - NDRRMC Memorandum No. 44, s 2016: Guidelines on the Mobilization of Incident Management Teams - NDRRMC Memorandum No. 22, s 2017: NDRRMC National Disaster Response Plan for Hydro-Meteorological, Earthquake, Tsunami, and Consequence Management for Terrorism Related Incidents - NDRRMC Memorandum No. 50, s 2017: Checklist of Actions and Milestones for Earthquake Preparedness - Department of Budget and Management (DBM)-NDRRMC-DILG JMC 2013 - 1: Allocation, Utilization of the Local Disaster Risk reduction and Management Fund - NDRRMC-DILG-DBM-Civil Service Commission (CSC) JMC 2014 - 1: Implementing Guidelines for the Establishment of Local DRRM Officers (LDRRMOs) or Barangay DRRM Committees (BDRRMCs) in LGUs - RA 11292: The Seal of Good Local Governance Act of 2019 - DILG Operation Listo

Stakeholders involved in Contingency Planning

The process of contingency planning becomes most effective when it is participatory and collaborative, i., it involves the individuals, offices or agencies concerned who will work together in the event of an emergency. Practically speaking, all government and private entities are the stakeholders involved in conduct of contingency planning and have the responsibility to formulate their CPs. Specifically, here are the stakeholders involved in contingency planning across all levels of governance: Member agencies of the National/ Regional Disaster Risk Reduction and Management Council (DRRMC) Member agencies of the National/ Regional Crisis Management Committee (CMC) Technical experts (to help in risk assessment and provide other technical information) such as:

Philippine Atmospheric Geophysical and Astronomical Services Administration (PAGASA) for hydro- meteorological hazards
Philippine Institute of Volcanology and Seismology (PHIVOLCS) for geological hazards
Mines and Geosciences Bureau (MGB) for rain-induced landslides
Department of Health (DOH) for health-related hazards
Climate Change Commission (CCC) for climate-related hazards
Philippine National Police (PNP) for security-related hazards
Armed Forces of the Philippines (AFP) for armed conflict situations
National Intelligence Coordinating Agency (NICA) and Anti-Terrorism Council (ATC) for terrorist-related hazards CSOs, private sector groups and individuals offering augmentation

Stakeholders

at the

National/

Regional

Level

Stakeholders

at the

Agency/

Office /

Organization

Level

Local DRRM Officers (focal persons in DRRM) Sanggunian members Representatives of local committees Member offices of the Local DRRMC Member offices of the local CMC Technical experts (to help in risk assessment and provide other technical information) such as: - PAGASA for hydro-meteorological hazards - PHIVOLCS for geological hazards - MGB for rain-induced landslides - DOH for health-related hazards - CCC for climate-related hazards - PNP for security-related hazards - AFP for armed conflict situations - NICA and ATC for terrorist-related hazards National government agencies operating at the local level CSOs, private sector groups and individuals offering augmentation

Stakeholders

at the

Local Level

(Provincial/ City/ Municipal/ Barangay) Division/unit heads Planning officers and other action officers/ technical staff (finance, logistics, operations, human resource, etc.) Disaster Control Group members Technical experts (to help in risk assessment and provide other technical information) such as:

PAGASA for hydro-meteorological hazards
PHIVOLCS for geological hazards
MGB for rain-induced landslides
DOH for health-related hazards
CCC for climate-related hazards
PNP for security-related hazards
AFP for armed conflict situations
NICA and ATC for terrorist-related hazards Local authorities (coordination for augmentation) CSOs, private sector groups and individuals offering augmentation

FORMULATING THE CONTINGENCY PLAN

Although a mechanism for disaster response, CP formulation remains as a disaster preparedness activity. It works best if sensitization activities are successfully done during peace time such as environmental scanning, awareness raising, risk assessment and administrative preparations. Before proceeding with the planning process, it is important to “sell the idea” of CP to officials and the relevant authorities. It must be made clear to them that formulating CP is part of the DRRM mandate as provided for in RA 10121 and other issuances. However, it is also important to emphasize the protection of human lives from worst-case disaster situations as among the top convincing reasons why there is a need for CP. The buy-in and approval of the authorities will provide support and justification to do the next steps required for the formulation of CP. Further, it is important to generate situation awareness. As described by the NCMCM, situation awareness is the ability to extract and integrate information in a continuously changing environment and to use such information to direct future actions. It entails understanding of the operational environment that will provide the basis for the conduct of contingency planning. To generate situation awareness, planners need to do the following: - Do risk assessment - Detect early warning signs for hazards - Analyze historical data on previous disasters or crises - Determine the level of participation in the planning process - Invite technical experts - Prepare and review relevant materials Proper situational awareness will enable the planners to planners can proceed with the writing of the CP, which is broken into the following parts: Chapter I. Background Chapter II. Goal and Objectives Chapter III. Response Arrangements Chapter IV. Activation, Deactivation and Non-Activation Annexes

MATERIALS TO PREPARE

Maps Disaggregated population data Inventory of resources Relevant plans and policies

Chapter I. Background

A. Introduction Write a narrative to describe the overall profile of the LGU/ agency/ office/ organization. Refer to existing relevant sources in coming up with the narrative. B. Hazard Analysis 1. Accomplish CP Form 1: Hazard Analysis. This will allow identification and analysis of hazards based on their “Probability” and “Impact.” 2. Write a narrative to further describe the results of the accomplished form. Refer to existing relevant sources in coming up with the narrative. C. Hazard to Plan for 1. State the specific hazard to plan for. This is the hazard that ranked as number one in the accomplished CP Form 1. 2. Accomplish CP Form 2: Anatomy of the Hazard for the selected hazard to be included as part of Chapter I. 3. Write a narrative to further describe the results of the accomplished form. Refer to existing relevant sources in coming up with the narrative.

COMMON SOURCES FOR CP NARRATIVES

Documentation of history of the LGU/ agency/ office/ organization Ecological profile Maps (hazard, risk, base, administrative, political, etc.) Disaggregated data on population and resources Situation reports and statistics Disaster and crisis advisories Historical data/ records on past disasters or crises DRRM and CM updates and trends Community Based Management Information System (CBMS) for LGUs Other existing plans related to DRRM and CM such as comprehensive land use plan (CLUP), DRRM plan, etc.

IMPORTANT

There are instances in which the hazard to plan for is already pre- determined based on management or organizational priorities. In such case there is no need to do CP Form 1.

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