RESTRICTED

PAM 7-031

DISASTER MANAGEMENT
OPERATIONS
(Interim Draft)

October 2005

The information contained in this document is not to be communicated, either

directly or indirectly to any person not authorized to receive it.

RESTRICTED
 RESTRICTED

HEADQUARTERS
TRAINING AND DOCTRINE COMMAND, PHILIPPINE ARMY
Camp O’Donnell, Brgy Sta Lucia, Capas, Tarlac

FOREWORD

The Training and Doctrine Command, Philippine Army has long been
conducting training for the Army’s personnel, mostly to strengthen their
knowledge on PAM 7-031 Disaster Operations Management and
Operation Manual. The demands of such doctrine have been increasing;
hence the need for comprehensive reference material (RM) for the Army
school could not be overemphasized.

We welcome the printing of this RM. This is the product of the fixing
initiatives of our newly-invigorated Doctrine Center. This is expected to benefit
the instructors and students of the Training and Doctrine Command as it
discusses the salient features of Warfighting. More importantly, researchers
and writers of military doctrines will also find this reference material useful. By
being aware of the importance as well as the substance of its contents, the
users will be able to properly utilize and employ them in order to exploit their
useful implication in the Army’s operations.

While the concepts and guidelines embodied in this RM have been

thoroughly validated, these have been accredited by TRADOC for the use of
all Army schools. This is to be further subjected to test and evaluation prior to
the promulgation of CSAFP for widest dissemination. As such, we are
soliciting your valued inputs and insights to make it more responsive and
dynamic amidst the ever-changing operational environment.

CARLOS B HOLGANZA
Major General, AFP
Commander

RESTRICTED i
 RESTRICTED

ii RESTRICTED
 RESTRICTED

AMENDMENT CERTIFICATE

1. Proposals for amendment or additions to the text of this manual should

be made through the normal channels to the sponsor. A sample format of an
amendment proposal is found in Annex P of PA Doctrine Development PAM
8-01.

2. It is certified that the amendments promulgated in the under-mentioned

amendment list have been made in this manual.

Amendment List Amended by Date of

Number Date (Printed Name and Initials) Amending
1.

2.

3.

4.

5.

6.

7.

8.

9.

10.

11.

12.

RESTRICTED iii
 RESTRICTED

iv RESTRICTED
 RESTRICTED

PREFACE

1. Purpose

The purpose of this manual is to provide general principles and

guidelines for disaster management operations throughout the whole
spectrum of disaster management. It also aims to provide guidelines in
dealing with disasters both man-made and natural.

All principles and guidelines prescribed in this manual are in

consonance with the Philippine Army Operations Manual and the existing
National Policies, Laws and Regulations, and other related manuals
concerning disaster management.

2. Scope

This manual outlines the general principles and guidelines for the
commanders and staff in the conduct of disaster management operations.
Nevertheless, application of various principles, policies and programs varies
from one situation to another as every situation has its unique characteristics.

This publication is divided into seven chapters, each with distinct but
related subject and focus including the general environment in disaster
management, various disaster management models, army capabilities,
operational concepts, logistics, support operations, and training.

3. User information

The proponent of this manual is the Office of the Assistant Chief of

Staff for Civil Military Operations, OG3, PA. Users of this manual are
encouraged to submit recommended changes for its improvement. Comments
should identify the area in which the change is recommended, indicating
exactly how a portion should be rephrased. Reasons should be provided for
each comment to allow complete evaluation. Comments should follow the
format in Appendix C and forwarded directly to the OG7, PA.

4. References

The following references were used in this publication:

The Calamities and Disaster Preparedness Plan of the National

Disaster Coordinating Council.

Standing Operating Procedures (SOP) Number 15 of the Armed

Forces of the Philippines – The AFP Calamities Preparedness Plan
The Presidential Decree No. 1566 dtd 11 June 1978 – Philippine
Disaster Control Capability and Establishing the National Program on
Community Disaster Preparedness.

RESTRICTED v
 RESTRICTED

International Federation of Red Cross & Red Crescent Societies,

“World Disaster’s Report” (Focus on Reducing Risk),Valserine, France 2002.

Asian Development Bank, “Disaster Management” (A Disaster

Manager’s Handbook), W. Nick Carter, Manila 1991.

Philippine National Red Cross, “Community-Based Disaster

Preparedness”, Philippines 2000.

The New Relevant, Efficient & Responsive Training (RERT) NDCC,

Office of the Civil Defense, “Emergency Management Training”, Module 1.

Headquarters Philippine Army, “Philippine Army Doctrine

Development”, Philippine Army Manual 8-01, Sep 1999.

Doctrine Center, Training and Doctrine Command, PA, “Writers and

Editors Guide to PAM Preparation”. Philippine Army Manual 8-011, March
2001.

Philippine Army, “Combat Service Support Manual”, Philippine Army

Manual 4-01, 2004.

Philippine Army, “Infantry Operations Manual”, Philippine Army Manual

3-01, 2002.

Philippine Army, “International Security Operations” Philippine Army

Manual 3-001, 2004.

Philippine Army, “Philippine Army Training System”, Series – 1997.

Philippine Army, Command and General Staff College, “CMO Disaster

Response Management” (Commandant’s Paper), LTC ORGANIZA CGSC CL
02-02.

5. Rescission

All publications, manuals and directives inconsistent with this manual is

hereby rescinded.

6. Gender

Unless this publication states otherwise, masculine nouns and

pronouns do not refer exclusively to men. The pronoun “her” is used to
represent the Army.

vi RESTRICTED
 RESTRICTED

CONTENTS

Foreword i
Amendment Certificate iii
Preface v
Contents vii

Section Page

CHAPTER 1 – DISASTER MANAGEMENT

ENVIRONMENT

1-1 General 1-1

1-2 Types of Hazards and Effects 1-1
1-3 Other Emergency Environments (Terrorism) 1-4
1-4 Threats in the Conduct of Disaster Operations 1-4
1-5 National and Local Disaster Management
1-4
Environment

CHAPTER 2 – DISASTER MANAGEMENT CYCLE

2-1 General 2-1

2-2 The ADB Disaster Management Cycle Model 2-1
2-3 The Disaster Crunch Model 2-3
2-4 The Release Model 2-4
2-5 The NDCC Disaster Management Cycle Model 2-5
2-6 Relationship of ADB and NDCC Disaster Management
2-6
Cycle Models
2-7 Army’s Role in the Disaster Management Cycle 2-7

CHAPTER 3 – DISASTER MANAGEMENT

OPERATIONS COMPONENTS AND CAPABILITIES

3-1 General 3-1

3-2 Command and Control Group 3-1
Disaster Management Operations Group
3-3 3-2
Components and their Capabilities

CHAPTER 4 – DISASTER MANAGEMENT

OPERATIONS

4-1 General 4-1

4-2 Principles of Disaster Management Operations 4-1

RESTRICTED vii
 RESTRICTED

4-3 Tenets of Disaster Management Operations 4-3

4-4 Disaster Management Operations Framework 4-4
4-5 Disaster Management Operations Planning 4-5
4-6 Organization 4-7
4-7 Activities in Disaster Management Cycle 4-9

CHAPTER 5 – DISASTER MANAGEMENT

OPERATIONS LOGISTICS AND SERVICE
SUPPORT

5-1 General 5-1

Disaster Management Operations Service Support
5-2 5-1
Characteristics
Service Support Functions for Disaster Management
5-3 5-2
Operations

CHAPTER 6 – OTHER DISASTER MANAGEMENT

SUPPORT OPERATIONS

6-1 General 6-1

6-2 Policies and Legal Basis 6-1
6-3 Protocols and Practices 6-1
6-4 Knowing Cultures and Traditions 6-1
Support to other Local Disaster Management
6-5 6-2
Operations Units
6-6 Support to Allied/Friendly Countries 6-2
6-7 Support to International Response Unit 6-2

CHAPTER 7 – DISASTER MANAGEMENT

OPERATIONS TRAINING AND PREPARATIONS

7-1 General 7-1

7-2 Definition of Terms 7-1
7-3 Disaster Management Operations Training Principles 7-1
7-4 Training Process/Analysis 7-2
7-5 Areas for Training 7-3
7-6 Guide to Conduct Training 7-4
7-7 Disaster Management Operations Training System 7-4

Glossary

viii RESTRICTED
 RESTRICTED

CHAPTER 1
DISASTER MANAGEMENT ENVIRONMENT

Section 1-1 General

As defined in the Disaster Management: A Disaster Manager’s

Handbook published by the Asian Development Bank, a disaster is an event,
natural or man-made, sudden or progressive, which impacts with such
severity that the affected community has to respond by taking exceptional
measures.

The same publication also defined disaster management as an applied

science which seeks, by the systematic observation and analysis of disasters,
to improve measures relating to prevention, mitigation, preparedness,
emergency response and recovery.

The Philippines is considered one of the most disaster prone countries

in the world. As such, the country is annually plagued by disasters and this
has become a major obstruction in the sustainable development of the
country. Response to cope with the effects of disasters is a primary concern
of the government. In line with this, the government maximizes the utilization
of its agencies, peoples’ organizations, non-government organizations and
other institutions including the Armed Forces of the Philippines in responding
to disasters.

This chapter presents the different hazards, both natural and man-
made which trigger disaster, and the effects of these disasters, and other
emergency environment such as those resulting from terrorist acts. Later part
of this chapter briefly discusses the national and local disaster management
system, including the organizations involved in the disaster management.

Section 1-2 Types of Hazards and Effects

1. Natural. The Philippines is exposed to almost all natural hazards. The

following is a brief account of the main hazards to which the country is
exposed.

a. Typhoon. A severe tropical hurricane which usually occurs in

western Pacific or the China Sea. Typhoons are annual occurrences and the
most frequent cause of disaster in the Philippines and have a severe impact
on large parts of the country. Typhoons occur mainly from July to December.
The southern part of the country is slightly less affected. Typhoons result to
destruction of properties, crops, livestock, infrastructures and loss of lives.
Typhoons accompanied by heavy rains are the cause flooding.

RESTRICTED 1-1
 RESTRICTED

b. Storm surge. An atmospheric disturbance manifested in strong

winds accompanied by rain and often by thunder and lightning. Storm surges
often accompanied by typhoons sometimes cause severe damage to coastal
areas. It may cause heavy flooding especially in low-lying areas and vicinities
with inadequate drainage system.

c. Flood. Is the overflowing by excessive water onto an area which

is normally dry. It is estimated that 47 % of the average annual rainfall is due
to typhoons. There are strong indications that the flood risk has increased
significantly due to deforestation. Flooding severely disrupts the economic
and social activities of the people. Sometimes it is swift and it often results to
loss of lives, destruction or loss of properties, destruction of infrastructures
and other valuable assets essential for the well being of the people.

d. Volcanic Eruption. Is the process wherein molten rock materials

(magma) are emitted or ejected in the form of flowing masses and stream
from a crater vent fissure. Volcanic eruption usually results to the
displacement and evacuation of people living within the danger areas around
the erupting volcano. It also causes disruption in economic and social
activities of the people and the loss of lives and destruction of properties.
Significant volcanic eruption also changes permanently the local agricultural
landscape. The Philippines has more than 200 volcanoes, of which at least
17 are considered active. The Mount Pinatubo eruption was among the
biggest volcanic eruptions in recent times.

e. Earthquake. Earthquakes are ground vibrations caused by

volcanic activity. These occur without notice. Earthquakes usually trigger
landslides. Strong earthquakes may result to severe destruction of
properties, infrastructures, economic facilities and vital utilities. It may even
result to loss of lives and injuries. Earthquakes originating from the sea may
trigger tsunamis which pose extreme hazard in coastal areas.

f. Tsunami. Tsunamis are very large ocean waves caused by

underwater earthquake or volcanic eruption and are sometimes loosely
called “tidal waves”. Tsunamis have affected Philippine coastal areas up to
four meters above sea level. The coastal areas of southwest Mindanao are
most vulnerable. Tsunamis may result to the destruction of properties and
infrastructures, injuries and even loss of lives in coastal areas.

g. Landslide. It is the dislodging and falling of a mass of land and

rocks. Landslides are mostly triggered by excessive rainfall as in the
Southern Leyte tragedy in February 2006 or by earthquakes as what
happened in Baguio City in July 1990. Severe landslides may isolate a
locality with the obstruction of major economic and communication links. In
some cases, landslides may cause injuries or even loss of lives.

h. Drought. It is a long period without rainfall. Drought which is

becoming common in the Philippines brings damage to crops which lead to
economic losses and disaster declarations. Increasing drought risk is thought
to be associated with deforestation and agricultural development.

1-2 RESTRICTED
 RESTRICTED

2. Man-made Disasters. Man-made disasters are events triggered by

hazards initiated by human activities and undertakings either deliberately or
by accident, causing massive destruction, economic losses, injuries or loss of
lives.

a. Fire. Rapid and persistent chemical reaction involving the

combination of combustible material and oxygen that releases heat and light.
Uncontrolled fire results to destruction of properties and severe physical and
psychological injuries or even resulting to loss of lives. Fire is caused by
various origins ranging from faulty electrical wirings, overloading of electrical
equipment, negligent and irresponsible use of heat emitting devices, to
arson.

b. Conflagration. It is a large disastrous fire involving numerous

buildings/houses or structures.

c. Maritime Disasters. These are ill-fated events that occur at high

seas causing excessive damages, injuries and loss of lives.

d. Land and Air Accidents. These are unplanned or unforeseen

events or circumstances that may occur either on air or on land resulting
mostly from ignorance or carelessness.

e. Oil Spill. Fallout of oil or similar substance from a container

resulting to environmental hazards. Oil spill usually occurs at the sea and is
caused by the mishandling of vessels containing the substance or from sea
mishaps or accidents as what had happened in Guimaras on 11 August
2006.

f. Civil Strife. Social unrest with violent activities, destruction of

properties, and chaos resulting to injuries.

g. Pollution. The contamination of water, soil, or atmosphere by the

discharge of noxious substances especially gaseous, chemical or organic
wastes. Pollution causes hazards to the environment and health.

h. Red Tide. Presence of toxic chemicals or pollutants in coastal

waters that extremely affects natural resources resulting to food poisoning
and deaths.

i. Industrial Accidents. Accidents that occur in industrial facilities

caused by unsafe practices or malfunction of equipment and machineries. It
could be very minimal or extensive in magnitude.

RESTRICTED 1-3
 RESTRICTED

Section 1-3 Other Emergency Environments (Terrorism)

The terrorist threat that emerged in the last few decades also poses
hazard that can trigger disasters. Acts of terrorism such as bombing,
sabotage, arson, gas attack and other forms can set off natural and man-
made hazards that may lead to disasters of large magnitude and extent.
Bombing a tall building may cause it to collapse and trap hundreds of people
inside while falling debris can cause injuries and kill a number of people
around. The sabotage or destruction of the dam of a hydro-electric plant can
cause excessive floods in low lying areas.

Section 1-4 Threats in the Conduct of Disaster Management Operations

A situation or an external factor that tends to impede the orderly and

smooth conduct of a disaster management operation is considered as a
security threat. More specifically, armed groups as well as mob can hamper
disaster response units in carrying out their tasks.

3. Armed Groups. The presence of armed groups within the proximity of

the disaster areas shall always be evaluated and assessed in order to ensure
the safety of the members of the disaster response units. Armed groups, such
as the local terrorists and lawless elements may take advantage of the
situation and inflict injuries and casualties to the members of disaster
response units.

4. Mob. Amidst a situation where confusion and chaos prevail, the

possibility of the members of a disaster response unit being crowded around
or violently attacked by a mass of people should always be considered. The
perceived inability of disaster response units to contain or cope with the
effects of disaster may drive a mob in anger and attack the responding
members of the disaster response units.

Section 1-5 The National and Local Disaster Management Environment

The Philippines implements a disaster management system to prevent

disasters and counteract or cope with its effects. Presidential Decree No.
1566 is the primary law that governs this system.

5. State Policy in Disaster Management. Presidential Decree No.1566

or the Law on Strengthening the Philippine Disaster Control Capability and
Establishing the National Program on Community Disaster Preparedness
incorporates a declaration of State Policy on disaster management as follows:

1-4 RESTRICTED
 RESTRICTED

a. Self-Reliance shall be developed by promoting and encouraging

the spirit of self help and mutual assistance among the local officials and their
constituents.

b. Each political and administrative subdivision of the country shall

utilize all available resources in the area before asking for assistance from
neighboring entities or higher authority.

c. The primary responsibility lies on the government agencies in

the affected areas in coordination with the people themselves.

d. It shall be the responsibility of all government departments,

bureaus, agencies and instrumentalities to have documented plans of their
emergency functions and activities.

e. Planning and operation shall also be done on the barangay level

in an inter-agency, multi-sectoral basis to optimize the utilization of
resources.

f. In the absence of duly constituted regional government, national

government at the regional level shall be led and operationally controlled by
the Regional Commissioner or an official being designated by the President.

g. Responsibility for the leadership rests on the Provincial

Governors, City Mayors, Municipal Mayors (and Barangay Chairmen), each
according to his area of responsibility.

h. When an emergency affects an area covering several towns and

cities, the city mayor and their personnel and facilities shall be placed under
the operational control of the Provincial Governor for the duration of the
emergency.

i. The National Government exists to support the local

governments. In time of emergencies and according to their level of
assignment, all national government offices in the field shall support the
operations of the local government.

j. To ensure that operational activities become automatic and

second nature to all concerned, exercises and periodic drills shall be
conducted at all levels, principally at the barangays.

6. The Organization of Disaster Coordinating Councils. The basic

Philippine law on disaster management provides for the organization of multi-
sectoral disaster coordinating councils at every level of government, from the
national level to the barangay (or village) level headed by the local chief
executive of the affected area. Through these disaster coordinating councils,
which are able to link with all relevant government agencies and civic
organizations, Philippine communities mobilize resources and capabilities
needed to manage disasters.

RESTRICTED 1-5
 RESTRICTED

The disaster coordinating council approach enables the country to

utilize all available means for disaster response, means that are ordinarily
used for military and police missions, public service or commercial purposes,
but may be rapidly converted into disaster reduction capabilities. It also allows
for routine cooperation, sharing of resources and dissemination of information
during periods of extreme stress and emergencies. At the same time, the
disaster management coordination approach provides for dedicated technical
capabilities for specialized disaster management services as well as directing
attention to disaster preparedness.

At whatever scale of disaster, whether national, regional, provincial,

municipal or barangay level, an appropriate disaster coordinating council is
established, organized and trained to respond. The National Disaster
Coordinating Council or NDCC, is the policy-making and coordinating body for
disaster management at the national level. It directs all disaster preparedness
planning, as well as disaster response operations and rehabilitation, both in
the public as well as private sectors. It advises the President on matters
related to natural calamities and disasters, including recommendations for the
declaration of a state of calamity in disaster-affected areas. There are
nineteen (19) member-agencies that comprise the NDCC. However, other
agencies may be tapped by the NDCC chairman to be ex-officio members.

In each local government of the province, city or municipality, the local

disaster coordinating council is headed by the local chief executive. In these
local disaster coordinating councils, local as well as central government
agencies operating at the local level cooperate with civic and non-government
organizations under the leadership of the local chief executive.

7. Disaster Management Response Units. Several disaster response

units are organized and established at the local level. These are composed of
the government agencies, non-government organizations, and peoples’
organization.

8. Disaster Management Operations Support. The Local Government

Code of 1991 has decentralized much of the authority of governance to local
officials. All local government units are required to set aside 5% of their
estimated revenues from regular sources for unforeseen expenditures arising
from the occurrence of disasters. These funds are used for disaster
management operations, relief and rehabilitation.

9. Commonly Used Terms in Disaster Management. In the course of

disaster management, it is important that each of the participants and players
know the commonly used language in the conduct of disaster operations. The
following are the commonly used terms in disaster management:

a. Acceptable Risk. Degree of human and material loss that is

perceived by the community or relevant authorities as tolerable in actions to
minimize disaster risk.

1-6 RESTRICTED
 RESTRICTED

b. Assessment. Survey of a real or potential disaster to estimate

the actual or expected damages and to make recommendations for
prevention, preparedness and response.

c. Civil Defense. The system of measures, usually run by a

government agency, to protect the civilian population in wartime, to respond
to disasters, and to prevent and mitigate the consequences of major
emergencies in peacetime.

d. Civil Defense Operations Center (CDOC). The facility through

which all disaster planning and operations of the National Government are
conducted.

e. Civil Emergency. It is the disruption of normal activities of the

civil populace occasioned by riots, rebellion, revolution and other similar
events.

f. Disaster. A serious disruption of the functioning of society

causing widespread human, material, or environment losses which exceed
the ability of affected society to cope using only its own resources. Disasters
are often classified according to their cause (natural or manmade).

Disaster is a situation usually catastrophic in nature, in which a number

of persons are plunged into helplessness and suffering, and as a result may
be in need of food, clothing, shelter, medical care and other basic necessities
of life.

g. Disaster Control. It is the act of limiting or mitigating the effects

of disasters through the introduction of measures designed to prepare the
inhabitants and to protect their lives and properties before, during and after a
disaster.

h. Disaster Epidemiology. The material disruption discipline that

studies the influence of such factors as the lifestyle, biological constitution
and other personal or social determinants on the incidence and distribution of
disease as it concerns disasters.

i. Disaster Management. The body of policy and administrative

decisions and operational activities which pertains to the various stages of a
disaster at all levels.

j. Disaster Operations. Any concerted effort by two or more

agencies, governmental and/or otherwise, to provide emergency assistance
in relief to persons who are victims of a disaster/calamity and in the
restoration of essential public utilities and facilities. Specific aid and
assistance that may be provided in disaster operations include: issuance of
medical supplies and equipment and emergency medical treatment; food,
water, and shelter, rescue and firefighting services; police protection, route
clearances and traffic control; prevention of panic; communications; and
restoration of facilities.

RESTRICTED 1-7
 RESTRICTED

k. Disaster Operation Center. Officially designated facility for the

direction and coordination of all activities through natural processes and/or
human activities.

l. Disaster Response. A sum of decisions and actions taken during

and after disaster, including immediate relief, rehabilitation, and
reconstruction.

m. Disaster Team. Multidisciplinary, multisectoral group of persons

qualified to evaluate a disaster and to bring the necessary relief.

n. Elements at Risk. The population, buildings and civil engineering

works, economic activities, public services and infrastructure, etc, exposed to
hazards.

o. Emergency. A sudden and usually unforeseen event that calls

for immediate measures to minimize its adverse consequences.

p. Engineering. As applied to a disaster situation pertains to repairs

and restoration of infrastructures, buildings and utilities.

q. Hazard. A threatening event, or the probability of occurrence of

potentially damaging phenomenon within a given time period and area.

r. Hazardous Material. A substance or material which has been

determined by an appropriate authority to be capable of posing an
unreasonable risk to health, safety and property.

s. Information Report. Report with the same content as that of

situation report but issued by an agency in the event that international
assistance has not been subject of an official request by the government.

t. Local Disaster Coordinating Council. It is a group of people at

the provincial, city, municipal or barangay level, duly organized for the
purpose of preparing the people under its jurisdiction, to mitigate the effects
of disasters and to control the disaster operations of its tasked units.

u. National Disaster Coordinating Council (NDCC). The highest

governmental body responsible for advising the President on the status of
disaster preparedness program and disaster relief and rehabilitation efforts at
the national level.

v. Non-Government Organization. Non-profit making organization

operating at the local, national, or international levels. Distinct from a
governmental organization, having no statutory ties with a national
government.

1-8 RESTRICTED
 RESTRICTED

w. Operational Control. As distinguished from administrative

control, this refers to supervision and direction over units involved in disaster
operations, but only during periods of disaster.

x. Population Risk. A well defined population whose lives, property,

and livelihoods are threatened by given hazards.

y. Prediction. A statement of the expected time, places and

magnitude of a future event (for earthquakes and volcanic events)

z. Preparedness. Activities designed to minimize loss of life

and damages, to organize the temporary removal of people and property
from a threatened location and facilitate timely and effective rescue, relief
and rehabilitation. (See also PREVENTION)

aa. Prevention. Encompasses activities designed to provide

permanent protection from disasters. It includes engineering and other
physical protective measures, and also legislative measures controlling land
use and urban planning.

bb. Public Awareness. The process of informing the community as

to the nature of the hazard and actions needed to save lives and property
prior to and in the event of a disaster.

cc. Reconstruction. Actions taken to re-establish a community after

a period of rehabilitation subsequent to a disaster. Actions would include
construction of a permanent housing, full restoration of all services, and
complete resumption of the pre-disaster state.

dd. Regional, Provincial, Municipal and Barangay Disaster

Coordinating Councils. The organizations responsible for the conduct of
disaster preparedness program, disaster relief and rehabilitation efforts at
their respective levels.

ee. Rehabilitation. The operations and decisions taken after a

disaster with a view to restoring a stricken community to its former living
conditions, while encouraging and facilitating the necessary adjustments to
the changes caused by the disasters. It is the restoration of a person's
economic dependency to an independent or stable way of living either
physically, economically, socially or emotionally.

ff. Relief. Assistance and/or intervention during or after settlement

of persons dislocated or otherwise affected by a disaster to an area different
from their last place of habitation. It is an act of helping or alleviating the
condition of persons who are suffering from the effects of disaster/calamity
and are at the time completely helpless.

gg. Risk. Expected losses (of lives, persons injured, property

damage, and economic activity disrupted) due to a particular hazard for a

RESTRICTED 1-9
 RESTRICTED

given area and reference period. Based on mathematical calculation, risk is

the product of hazard and vulnerability.

hh. Secondary Hazards. Those hazards that occur as a result of

another hazard or disaster, i.e., fires or landslides following earthquakes,
epidemics following famine, food shortage following drought or floods.

ii. Situation Report. A brief report that is published and updated

periodically during a relief effort and which outlines the details of the
emergency, the needs generated, and the responses undertaken by all
donors as they become known. Situation reports are issued by UNDRO,
UNHCR, ICRC, and LRCS

jj. State of Calamity. It is a condition so declared by the President

in the event of widespread destruction to property and loss of life due to
destructive forces of nature or man-made emergencies.

kk. Vulnerability. Degree of loss (from 0% to 100%) resulting

from a potential damaging phenomenon.

1-10 RESTRICTED
 RESTRICTED

CHAPTER 2
DISASTER MANAGEMENT CYCLE

Section 2-1 General

Over the years, governments and different organizations have

formulated strategies and approaches to counter the adverse impact of
disasters and cope with its effects.

This chapter discusses disaster management cycle models based on

the study commissioned by the Asian Development Bank and the Conceptual
Disaster Management Cycle adopted by the National Disaster Coordinating
Council wherein a co-relationship between the two models were made
followed by a brief discussion of the Army’s roles in each of the component of
the Disaster Management Cycle.

Section 2-2 The ADB Disaster Management Cycle Model

As presented in the Disaster Managers’ Handbook, disaster

management involves seven segments. These segments include
development, prevention, mitigation, preparedness, disaster impact, response
and recovery.

Figure 2.1 represents the ADB Disaster Management Cycle. The

division of each segment does not necessarily connote that one segment has
to be completed before the succeeding segment can commence. Rather, it
should be noted that two or more segments may start simultaneously
depending on the obtaining situation. For instance, response can be
implemented when disaster suddenly struck even when the development
segment is still ongoing.

The size of each segment does not represent the degree of importance
or the emphasis of a particular segment in relation to the other. More exactly,
it represents the distinction between each of the segment in the cycle.

RESTRICTED 2-1
 RESTRICTED

Development

Recovery
Prevention

Response
Mitigation

Preparednes
Disaster Impact

Figure 2.1 - Disaster Management Cycle, ADB

1. Development. It provides the link between disaster-related activities

and national development. This ensures that the results of disaster are
reflected in future policies in the interest of national progress. This linkage
should guarantee that development does not create hazards nor aggravate
the existing ones.

2. Prevention. Actions within the segment of prevention are designed to

impede the occurrence of a disaster event or prevent such an occurrence
having harmful effects in communities and vital installations. Prevention may
be in the form of structural or policy formulation.

3. Mitigation. Action within this segment usually takes the form of specific
programs intended to reduce the effects of disasters on a community or to
alleviate the hostility within the area. This may include the enforcement of
regulations on land use, building codes, safety regulations, agricultural
programs using high resistance crops, or simple clean up programs.

4. Preparedness. Preparedness is regarded as measures to enable

government, organizations, communities and individuals to respond rapidly
and effectively to disaster situations. This includes the formulation of valid and
updated disaster preparedness plans, special provisions for evacuation,
warning systems, drills and rehearsals, and public information and
awareness.

5. Disaster Impact. Disaster impact is the point in the disaster

management cycle at which the disasters occur. This is the instance wherein
the hazards are triggered and results to disaster or emergency situation.

2-2 RESTRICTED
 RESTRICTED

6. Response. Response measures are usually those which are taken

immediately prior to and following disaster impact. Its main objective is to
save lives and protect property, and to deal with the immediate disruption,
damage and other effects brought about by the disaster. This phase is usually
called emergency response.

7. Recovery. Recovery includes the immediate restoration of vital

facilities and utilities that are essential for the basic needs of the community.
Recovery subsequently leads to development.

Section 2-3 The Disaster Crunch Model

The Disaster Crunch Model is a framework for understanding and

explaining the causes of disaster. The framework shows that vulnerability
which is rooted in socio-economic and political processes has to be
addressed for disaster risk reduction.

The progression of vulnerability helps in understanding the complexity

of vulnerability, especially its underlying conditions and root causes that may
be quite remote from the disaster event itself. Through the reverse of the
model, the Disaster Release Model, it is easier to understand how the risks of
disaster can be reduced.

The Disaster Crunch Model proceeds from the premise that a disaster
happens when, and only when, a hazard impacts on a vulnerable community
or people. A natural phenomenon is not a disaster by itself. In like manner, a
community may be vulnerable to disaster for many years, yet without the
trigger event there is no disaster. A disaster happens when vulnerability and a
trigger event come together.

A hazard is the Trigger Event which sets off the disaster. It could be an
earthquake, volcanic eruption, landslide or civil conflict.

The Unsafe Conditions are the vulnerable context where the people
and property are exposed to risk of disaster. These make the community
vulnerable to a particular hazard. The physical environment is one element.
Other factors include an unstable economy and low income levels.

Dynamic Pressures within the society are the immediate causes of the
unsafe conditions. They are the processes and activities that have translated
the effects of root causes into unsafe conditions. These pressures answer the
question of HOW unsafe or dangerous conditions have arisen.

Beneath the dynamic pressures are the underlying causes which cause
communities or section of it to be unsafe or vulnerable. These are basic
fundamentals and ideologies on which the society is built. Vulnerability is just
a situation that happens. Most often, it has developed as a progression from
Underlying Conditions, to Dynamic Pressures, to Unsafe Conditions. These

RESTRICTED 2-3
 RESTRICTED

underlying or root causes answer the question WHY dangerous or unsafe

conditions persist. If the fundamental causes of disaster risk are not
addressed, then the disaster situation will soon repeat itself.

Section 2-4 The Release Model

In the same way that the Disaster Crunch Model helps in the study of
how vulnerability is built up, the Disaster Release Model helps in
understanding how the risks of disaster can be reduced.

The first stage is to examine the disaster event itself. Natural

phenomenon can not be prevented but the risks of their getting out of control
and causing damage and loss of lives can be reduced. Measures can be
undertaken to reduce or modify the hazards.

If unsafe conditions are to be turned into safe conditions, it is

necessary to adopt activities which will lessen the Dynamic Pressures. These
are the mitigation activities such as strengthening of houses and structures,
zoning ordinances, or building of disaster prevention structures.

The next step is to reduce pressures that directly or indirectly

contribute to the growth of vulnerability. This activity may include the
introduction of disaster preparedness plans, building or strengthening of local
institutions, education of local builders, or even protection of forest reserves.

The next stage is to address underlying causes with positive action.

This may involve the building of infrastructures for development which
encompasses disaster prevention, formulation of national policies, or even the
education of the population.

Section 2-5 The NDCC Disaster Management Cycle Model

The National Disaster Coordinating Council adopts a four-component

emergency management framework. This framework involves mitigation,
preparedness, response and rehabilitation.

8. Mitigation. This component refers to measures or programs aimed to

minimize the impact of a natural or a man-made hazard on a nation or a
community in terms of casualties and damages. It also refers to measures
designed to prevent a natural phenomenon from causing or resulting to
disasters or other related emergency situations.

9. Preparedness. This component refers to pre-disaster actions and

measures being undertaken to avert or minimize loss of lives and properties,
such as, but not limited to, community organizing, training, planning,

2-4 RESTRICTED
 RESTRICTED

equipping, stockpiling, hazard mapping and public information and education

initiatives.

10. Response. Response component refers to any concerted effort by two

or more agencies, public or private, to provide emergency assistance or relief
to persons who are victims of disasters or calamities, and in the restoration of
essential public activities and facilities.

11. Rehabilitation. Refers to the process by which the affected

communities/areas or damaged public infrastructures are restored to their
normal level or their actual condition prior to the occurrence of the disaster or
calamity.

Figure 2.2 - Conceptual Disaster Management Cycle,

National Disaster Coordinating Council NDCC

Section 2-6 Relationship of ADB and NDCC

Disaster Management Cycle Models

There are no marked distinctions between the ADB model with other
models in disaster management. The models presented follow the same
sequence and stages in the disaster management only that the seven-
segment model of the ADB study is far more illustrative and detailed
compared to the model adopted by the National Disaster Coordinating
Council. Figure 2.3 below depicts the relationship between the ADB model
and the conceptual disaster management cycle model adopted by the NDCC.

The ADB model expounds the distinction of activities between the

segments. This model emphasizes the development as part of the disaster

RESTRICTED 2-5
 RESTRICTED

management cycle in as much as disaster management is a major concern in

development. This segment also denotes organizational development,
capability building and training as part of the development phase. In the
NDCC conceptual disaster management model, development could already
be part of the mitigation stage. Prevention of disasters or negating potential
hazards to prevent disasters is incorporated in the infrastructure development
while organizational development, capability building and training are
considered part of preparedness.

Figure 2.3 - Relationship between the ADB and NDCC

Disaster Management Cycle Models

On the succeeding stages, the ADB model conveys the distinctions

between the prevention and mitigation stages. It defines the activities for the
prevention aspect as separate measures from those in the mitigation
segment. In the NDCC model, prevention and mitigation are merged as
mitigation although it encompasses measures to prevent the occurrence of
disasters.

Measures under the preparedness and response are generally

indistinguishable. However, the ADB model portrays the very short period
between preparedness and response. The disaster impact stage is the trigger
point at which hazards are set off and result to disaster.

The recovery segment in the ADB model conveys the same measures
in the rehabilitation stage in the NDCC model. This refers to the immediate

2-6 RESTRICTED
 RESTRICTED

restoration of services and utilities back to their original state prior to the
impact of disaster.

Section 2-7 Army’s Role in the Disaster Management Cycle

The Armed Forces of the Philippines particularly the Philippine Army is

considered as a major player in disaster management. The military is
regarded as an important and capable entity for disaster management due to
its training, equipment, and organizational structure. It is viewed as a capable
force that can perform a wide array of emergency actions and operate under
adverse conditions. Much more, majority of the standard and day-to-day
operations of the military organization parallel public emergency measures.

Based on the Calamities and Disaster Preparedness Plan, the Armed

Forces of the Philippines is tasked to establish communication linkages and
make these available for disaster operations; assist the PNP in providing
security coverage in disaster areas; assist in the reconstruction of damaged
national and local roads, bridges, structures and facilities; assist in providing
transportation facilities for the rapid movement of rescue relief supplies and
personnel; evacuation of victims; and to organize reaction teams in all military
installations.

In line with the tasks specified in the Calamities and Preparedness

Plan, the AFP formulated Standing Operating Procedure (SOP) Nr 15 also
known as the AFP Calamities and Disaster Prepared Plan. This SOP
prescribes the tasks of different AFP units during calamities and disasters.

The following sections of this chapter will discuss the role of Army units
within the different stages of disaster management following the ADB Disaster
Management Cycle model.

12. Development. During the development stage, Army units participate in

capability building and organizational development activities. Army units in the
field of engineering, medical services, communication and information
technology may be tapped to provide inputs in policy making and long term
development planning.

Other activities may include the conduct of joint training for disaster
response operations with the local disaster coordinating councils to enhance
the inter-operability of disaster response units coming from different member-
agencies.

Army units can also engage in educating and instilling public

awareness. Topics related to disaster prevention may be included in the
regular TI&E to educate own troops and make them aware initially. This shall
enable own troops to disseminate information while they deal with community
members as they visit different localities in their respective areas of operation.

RESTRICTED 2-7
 RESTRICTED

13. Prevention. In the prevention stage, the Philippine Army supports the
efforts of the government for disaster prevention. Army units may participate
in identifying and implementing engineering interventions. Engineering units
may be tapped to conduct mapping and related studies as well as the
construction of protective facilities depending on the capacity of the
concerned government entity. The Philippine Army also participates in
security operations to prevent high profile terrorist attacks that may result to
disasters.

14. Mitigation. During mitigation stage, Army units play an important role
in supporting government’s efforts in disaster mitigation. The Army engineers
in support role may be tapped by disaster coordinating councils to assist in
the structural disaster mitigation activities such as de-silting of river systems
or repair of public structures that pose hazards to citizens. It should be
emphasized that LGU resources shall be utilized for such activities. Other
Army units can also participate in clean up drives as part of civic action
activities.

15. Preparedness. In the same manner as in mitigation, the Army plays a

vital role for disaster preparedness. Army units participate in joint disaster
preparedness planning together with the member agencies and the disaster
coordinating council to come up with a sound plan to cope with effects of
disasters. Moreover, Army units shall maintain the readiness of their
respective disaster response units particularly the trained personnel organized
as a team or unit, and their equipment.

The following stages in preparedness segment are elucidated to

identify actions that the Army shall undertake:

a. Threat. As part of preparedness, Army units shall identify

hazards, critical areas, and effects of these hazards. These should be
discussed and presented with the disaster coordinating council and come up
with measures to prevent or mitigate the effects.

b. Warning. During the warning stage, Army units shall closely

monitor warnings or signals announced by appropriate government agencies
and be ready to execute measures relative to the warning. Moreover, Army
units shall disseminate the warning to those who do not have equipment to
monitor such warnings.

c. Precaution. Utilizing available capabilities, Army units shall

assist the local disaster coordinating council in the conduct of evacuation. In
coordination with other law enforcement agencies and as prescribed by the
local disaster coordinating council, Army units shall extend security assistance
to evacuation centers. Participation in providing medical services may be
arranged with the concerned agency. Army engineers may extend services in
the preparation and maintenance of evacuation facilities.
d. Disaster Impact. At the impact of disaster, and when situation
permits, Army units shall initiate immediate response during the critical
moments to those affected primarily to save lives. In instances where no

2-8 RESTRICTED
 RESTRICTED

preparation or very little preparation time is possible, such as road mishaps or

earthquakes, Army units shall initiate the most immediate and appropriate
response. However, subsequent actions shall be in accordance with the local
disaster coordinating council once coordination and control have been
established.

e. Response. During the response stage, the primary role of the

Army is to ensure security and stability in order to facilitate appropriate
response from other agencies and organizations especially during the most
critical periods within the emergency situation. The Army response units,
independently or in conjunction with other response units, support the conduct
of search and rescue, assistance in relief operation and evacuation, in the
distribution of emergency food, and in providing shelter and medical
assistance.

f. Recovery. The recovery segment may take three stages –

restoration, rehabilitation and reconstruction. At all stages, the Army’s role is
to support the government’s efforts to restore public utilities, rehabilitate
affected communities and reconstruct vital infrastructures. Army units may be
tapped by the local disaster coordinating council to conduct immediate
restoration of utilities. Army engineers, with their current capabilities may
conduct road clearing, particularly the fallen trees, debris or landslides,
restoration of water system, and power supply. Army units can also provide
communication facilities with the available communication equipment while
signal unit may provide assistance in the restoration of other communication
facilities. For hygiene and sanitation, medical services may also be provided
in coordination with the local health department. During the rehabilitation and
reconstruction, Army engineers may undertake civil work projects.

RESTRICTED 2-9
 RESTRICTED

2-10 RESTRICTED
 RESTRICTED

CHAPTER 3
DISASTER OPERATIONS COMPONENTS AND CAPABILITIES

Section 3-1 General

This chapter focuses on the different functions that various Philippine

Army units can develop and undertake in line with its innate responsibility to
assist in disaster management. This chapter describes the different
components of the Philippine Army Disaster Operations Unit.

The Philippine Army Disaster Operations Unit is an ad hoc organization

which is activated as the need arises. It is a generic organization composed of
different components with functions peculiar but complementary with each
other. At different levels of command, the unit will have varying capabilities
and may not necessarily have the different components as described. There
may be some variations because of the type of hazards and the inherent
capability of the unit concerned. Standing Operating Procedures (SOPs)
should be developed for the activation of the disaster operations unit in close
coordination with the counterpart disaster coordinating council in the area.

Section 3-2 Command and Control Group

Although the unit is a provisional organization, like in any other military

organization, the Disaster Operations Unit also adheres to the command and
control processes. The designated commander and his staff exercises control,
plans and directs operations toward a successful conclusion. It detects and
warns; establishes strategy and procedures; develops plans, allocates
resources, assigns tasks and monitors their completion; and reports results. It
is composed of but not limited to the following:

1. Commander. The officer assigned overall responsibility for disaster

operations.

2. Command Staff Officers. Provide specific support to the Commander

with functions that are not directly involved in service delivery.

a. Public Information Officer. The single media point of contact.

b. Safety Officer. Responsible for identifying safety issues and

fixing them.

c. Liaison Officer. Point of contact for agency-to-agency issues.

3. General Staff. Provides the management of the delivery of emergency

response services.

RESTRICTED 3-1
 RESTRICTED

a. Administration. Accounts for and manages the costs generated

by ongoing operations

b. Operations. Plans and executes Incident Action Plan.

c. Logistics. Provides the support necessary to carry out the plan.

Section 3-3 Disaster Operations Group Components and their

Capabilities

The following are the generic functional components for the Army
disaster operations unit and its capabilities:

4. Fire Services. The Philippine Army has a very limited fire fighting
capability especially on its lower unit levels. Only HPA and the Inf Div thru
their PEDs have fire trucks.

5. Engineering. The PA Engineer units can construct and rehabilitate

roads and bridges, buildings and related facilities. They could also be utilized
to assist in the relief, rescue and rehabilitation operations during calamities.
Normally, they can participate in training, awareness program and mitigation
preparation.

Following engineer units can be found in the present Army

organization. These units can best serve as the nucleus of a disaster
response unit because of their equipment and training.

a. HPA level - Eng Bn (S) and PED

b. Inf Div Level - PED

c. Engr Bde Level- 3 Egnr Construction Bns & 1 Engr

Spt Bn

d. Other PA Major Units- respective PEDs

6. Waterborne Rescue. These are units of the Army which have limited
water rescue capability. Mentioned below are the units which have the
watercraft and underwater equipment:

a. DEAR Coy

b. RCDGs

7. Nuclear, Biological, Chemical. At present, the Philippine Army has

no NBC capability in all its units.

3-2 RESTRICTED
 RESTRICTED

8. Canine. On a limited scale, the Army is capable of tracking victims of

disaster with the use of the Army Canine Coy.

9. Medical Services. The Army has medical units spread throughout the
archipelago. However, most of these are in the Infantry Divisions and other
major units only. A typical responding ambulance has complete medical
supplies and medical staff who are capable of administering medical services
to victims.

a. HPA level - FBGH

b. Inf Div Level - ASH, Medical Coy

c. Other PA Major Units - Medical Platoon

d. Bde/Regiment Level - Medical Platoon

e. Bn Level - Medical Section

10. Communications. The Philippine Army communications capabilities

can establish communication linkages and make these available for disaster
operations. The communication component can provide and maintain
continuous and reliable communications and adequate warning system
throughout the impending and existing disaster and calamities.

All units of the Philippine Army have their own signal equipment per
TOE. For emergency purposes, the group may request augmentation from
any of the following units below or may be integrated with other agencies with
communication capabilities:

a. HPA level - Signal Group

b. Inf Div Level - Signal Battalion

c. Other PA Major Units - Signal Platoon

d. Bde/Bn Level - Signal Pltn

11. Transport. The Philippine Army provides transport services utilizing

organic vehicles of its units. Vehicles of other units may be pooled into one to
expand capabilities and maximize results.

This can be obtained from any of the following units:

a. HPA level - ASCOM, SEB, HHSG

b. Inf Div Level - FSSU, SSBn

RESTRICTED 3-3
 RESTRICTED

c. Other PA Major Units - SS Coy/Trans Pltn

d. Bde/Reg/Bn Level - Transportation Pltn

12. Public Information. PA PI component is to provide information

updates on disaster situation and actions being undertaken. It is necessary in
order to synchronize actions, avoid confusion and prevent further damage.

a. HPA level - OACPA, CAG

b. Other Major Units - OG7s

c. Inf Div Level - Div OG7/CMOU

d. Bde/Reg/Bn Level - Bde S7 Sec

13. Security. The Philippine Army in all its unit levels has the capability to
provide for its own security. Security assistance may be provided to the local
police unit as necessary. Reservists may be utilized to provide additional
security in any occasion that there would be lack of disaster management
groups. The size of the security element shall be dependent on the threat
situation.

3-4 RESTRICTED
 RESTRICTED

CHAPTER 4
DISASTER OPERATIONS

Section 4-1 General

This chapter discusses the principles of disaster management

operations, organization, planning and deployment. The principles of disaster
management operations as presented in the succeeding section aims to
provide the basic guide and considerations for effective disaster management
operation. The section that presents the organization discusses the command
and control system, and the uniqueness of the command and support
relationship for disaster management operations. Subsequent sections
discuss the planning for disaster management operations and the disaster
management operations framework as guide for deployment.

Section 4-2 Principles of Disaster Management Operations

In disaster management, Army units shall be equipped with general

principles that shall serve as guide in planning for disaster preparedness and
in the execution of disaster preparedness plans.

1. Unity of Effort. Unity of effort requires coordination and cooperation

among all agencies or organizations even though they may not necessarily be
part of the same organizational structure. In inter-agency operations, unity of
command may not be possible, but the requirement for unity of effort
becomes paramount.

2. Unity of Command. When organizing several response units with

various types of capabilities, a unit commander shall be designated to
integrate, synchronize and oversee the activities of these response units in
order to ensure unity of command.

3. Objective. Every disaster management operations activity shall be

directed toward a clearly defined and attainable purpose. The purposes of
disaster management include saving lives and properties, minimizing
damages, and coping with the effects of disasters.

4. Mass. Mass is achieved by combining the different component

capabilities of disaster management organizations to pursue the common
purpose.

5. Security. Security enhances disaster response operations by reducing

vulnerability to unexpected effects of disasters or even from hostile acts of a
mob.

RESTRICTED 4-1
 RESTRICTED

Security results from the measures taken by an organization to protect

its disaster response assets. Knowledge and understanding of hazards and
disaster preparedness planning improve adequate security measures. Risk is
inherent in disaster response; however, disaster response units must not be
overly cautious. To be successful, they must take necessary, calculated risks
to preserve the response unit and achieve the common purpose.

6. Simplicity. Simplicity contributes to successful conduct of disaster

response operations. Simple plans and clear, concise tasks minimize
misunderstanding and confusion. Simplicity is especially valuable when
personnel of disaster response units are tired. Simplicity in plans allows better
understanding.

7. Priority. In all the facets of disaster management, priorities shall be

established. Priorities may vary in each of the phase in the disaster
management spectrum. The leader must be able to define priorities for works,
efforts, and support for the proper utilization of its resources and to attain a
bigger impact.

8. Universality. Everyone is responsible for disaster preparedness.

Responsibility for disaster management does not lie solely on the
government. Everybody shall be involved actively in all phases of the disaster
management cycle. It is inherent that every soldier has an important role and
responsibility in disaster management.

9. Continuity of Effort. Disaster may strike anytime. It is therefore

important for all disaster management organizations and every individual to
remain vigilant and prepared. Continuous efforts of preparation, capability
building, education, and other related activities shall be conducted. This is to
condition and prepare the people and disaster management organizations for
the event and to ease the effects of said calamities or disaster.

10. Flexibility. Disaster management organizations shall be flexible

enough to respond to unforeseen circumstances. Disaster response units
shall be ready to shift its effort, personnel, and resources where they are
mostly needed.

11. Versatility. Army units deployed in various parts of the country shall be
highly adaptable to enable them to shift their roles from security related
activities to disaster management. To attain versatility, Army units shall be
trained in multi-functions especially for disaster response.

12. Rapid Response. Disaster response should be immediate. Casualties

multiply exponentially for every second of delay.

13. Support Role. The army should realize that ISO remains to be the top
priority. Disaster operations should not, in any way, hamper the conduct of
ISO.

4-2 RESTRICTED
 RESTRICTED

14. Integration. Army Disaster Operations should not be performed

independently except when specifically tasked. It should be integrated with
the efforts of the lead agency (NDCC, RDCC, PDCC, and MDCC as the case
may be).

15. Core Competence. Army disaster operations should focus on army

core competencies. (security assistance, transportation assistance,
communication assistance, manpower assistance). We should know our
limitations to maximize efficiency.

Section 4-3 Tenets of Disaster Management Operations

There are requisites to achieve the desired effects that are derived
from the principles of disaster operations. The following are the essential
actions in disaster operations:

16. Inter-Agency Cooperation. Disaster management involves

various agencies and organization. To achieve the common goal in disaster
management, inter-agency cooperation is necessary. The disaster
coordinating council shall actively perform its role in coordinating the efforts of
different disaster management organizations in order to achieve efficient inter-
agency cooperation.

17. Defined Roles and Tasks. During the planning stage, disaster
management organizations shall clearly define the overall task of disaster
management and allocate supporting goals to each agency. Clearly defined
roles ensure that all efforts will be geared toward the overall task of disaster
management. Army units’ roles and tasks shall be in accordance to their
capability and mission.

18. Proactive Orientation. Disaster management shall not be limited to

response. More time and effort should also be directed in preparation and
mitigation. Programs for capability building, rehearsals and mitigating projects
shall be undertaken.

19. Active Planning. Everybody shall be involved actively in disaster

preparedness planning. The local disaster coordinating council regularly
conducts joint preparedness planning. Army units shall actively participate
during these planning sessions and during coordination meetings. Periodic
updates on the disaster preparedness plan shall be conducted and reviewed.

20. Ownership. Disaster management is everybody’s responsibility.

Everybody is a stakeholder and shall therefore have ownership of the disaster
preparedness plan.

RESTRICTED 4-3
 RESTRICTED

Section 4-4 Disaster Management Operations Framework

Various units of the Philippine Army are involved in disaster

management activities throughout the spectrum of disaster operations. During
pre-disaster phase, Army engineers may be deployed to undertake civil works
projects to mitigate or prevent disasters while other units may assist in public
education, information and advocacy. During emergency phase, Army units
conduct search and rescue operations to save lives and properties, evacuate
casualties and victims, and assist in relief operations and medical assistance.
During post emergency phase, the Army can assist other government
agencies in the restoration of public utilities, vital facilities, and infrastructures.

21. Pre-Disaster Phase. On pre disaster phase, disaster related activities

are undertaken by Army units in accordance with the existing guidelines
institutionalized by the organization in conjunction with the national and local
system.

22. Emergency Phase. Disaster operations during emergency require

changes and shifting in the set up and task organization to ensure the unity of
effort among various units and agencies operating within a locality. Army units
shall be able to cope with the rapid changing situation with every progress
and development in the emergency situation. They shall be able to quickly
organize and re-organize to keep pace with the developing situation.
Commanders must be fast in establishing command and support relationships
and in putting up the necessary command and control facility. Different units
deployed in a locality that are not normally part of a force may be placed
OPCON to a commander to undertake disaster operations during
emergencies.

It must be understood that an element may be detached from its parent

headquarters and be placed OPCON and form part of another force purposely
to undertake disaster operations to ensure unity of command and effort. In
other instances, various capabilities may be pooled together with other
agencies to pursue a specified task. Transportation section of a battalion may
be deployed with transportation assets from other agencies and
organizations. AFP medical personnel may be employed along with DOH and
local health workers.

23. Post-Emergency Phase. As the situation improves during the post-

emergency phase, organizations are adjusted depending on the prevailing
needs. Task organizations may slowly and gradually shift back to its original
set up as elements from different units are returned to their respective parent
or controlling headquarters. Operations centers or command control facilities
established to address the emergency situation may be deactivated.

In whatever system employed during emergencies, it should maximize

the utilization of resources and all actions must be in accordance with the
direction prescribed by the concerned disaster coordinating council.

4-4 RESTRICTED
 RESTRICTED

Section 4-5 Disaster Management Operations Planning

Effective disaster management operations need planning.

Disaster Operations planning enables manager to foresee most likely events
and can determine appropriate actions and measures to prevent disaster and
to mitigate and cope with its effects. This section presents planning principles
and the types of planning for disaster operations.

24. Principles of Planning.

a. Clarity. Aims must be positive, clear and precise. Plans should

be formulated in a way that people can quickly comprehend them. In cases
where response plans are to be implemented by people other than those who
actually made them, these plans should be easily understood so they will
know what has to be done. This is especially crucial when these emergency
response procedures have not been practiced regularly.

b. Flexibility. Events will seldom go exactly as anticipated.

Planning data and assumptions will never be accurate. Plans must consider
unexpected situations. Also, plans are only theoretical and can never be as
good as practical. They should not be rigid nor should they be followed
slavishly or laboriously in implementation. The purpose of contingency plans
is to facilitate decision-making in the event of an emergency. They can
sometimes be achieved by writing in the form of Checklists and SOPs.

c. Information. Good information is fundamental to sound planning

and effective response. Facts must be marshaled as comprehensively as
possible prior to planning and constantly reviewing. Contingency plans must
also include arrangements for collecting, analyzing, storing and disseminating
information. It is helpful to have standard formats for reports and information
storage.

d. Continuity. Whenever possible, adhere to the existing

organizational structure. It will be necessary to plan streamlined procedures,
but a moment of crisis is the worst possible time to rearrange the whole
organization.

e. Maximum use of all resources. During the planning stage, ask

yourself, “Who is good at doing what?” Then see how that expertise can be
utilized. Stress self-reliance. Make a comprehensive inventory of available
resources. Spread workload as widely as possible to involve all parts of the
community. Try to avoid allocating unfamiliar responsibilities and assign relief
responsibilities that are similar to routine ones. Effective crisis management
calls for collective effort.

f. Planning in packets. In assessing the anticipated impact of a

disaster, think in round numbers. Likewise try to organize relief teams with
capabilities, e. g. one standard Medical Team treat x victims per day. This

RESTRICTED 4-5
 RESTRICTED

process of approximation will make the organization of the response much

easier in the event of an emergency.

g. Maintenance of reserves. If your inventory of resources exactly

matches the anticipated workload, then you do not have enough. Always
create and maintain reserves for the unexpected. The shortfalls identified at
the planning stage will help identify the most probable forms of outside
assistance that will be required. Collation of resource inventories in plans
formulated at the provincial level will enable those at the national level to
identify resources that can be sourced from neighboring areas that are
unaffected.

h. Coordination. The system for collecting information, making

decision and recording action must be clear and known to all. If collective
action is to be fully effective, it must be coordinated.

i. Practice. Practice plans to identify and correct weaknesses in

them. Practice the people who will have to implement them.

j. Evaluation. An establishment procedure for post-disaster

evaluation of the effectiveness of the operations should be part of any
contingency plan. The steps involved in the emergency operations need to be
reviewed for their relevance and usefulness in mitigating or preventing the
emergency event. As a disaster manager, you need to know whether you and
your working partners have done the right thing.

25. Pre-Disaster Planning. Pre-Disaster planning is conducted long

before the impact of a disaster in preparation for a disaster. This is normally
referred to as contingency planning. Responses and measures to be
undertaken by different agencies and sectors including the resources that will
be committed will be determined, anticipated, and identified during the pre-
disaster planning.

26. Response Planning. Response planning is conducted to address

situations that were not foreseen or the details of events during the response
phase. It addresses specific tasks for each element of the response team. It is
done under time constrained environment and under extreme emergency
situation. Two types of planning may be conducted at this stage – hasty
planning and the more deliberate Disaster Operations Decision Making.

a. Hasty Planning. This is usually done in the event that an

unexpected or an unforeseen disaster suddenly occurs without any
preparedness or awareness of such.

b. Disaster Operations Decision Making Process. Decision making

is the major responsibility of a disaster commander, regardless of his
functional area of level in the organization. Some of these decisions may have
a strong impact on the unit, while others will be important but less crucial. The
important point, however, is that all will have some sort of effect. Below is the

4-6 RESTRICTED
 RESTRICTED

Disaster Operations Decision Making Process. This process is not rigid for
some steps could be skipped when dictated by the situation.

Receive and Analyze

Hasty Analysis M - Mission
Mission D - Disaster
T - Troops
A - Area
Issue Warning Order T - Time

M
Make a Tentative Plan Detailed Mission Analysis
Situation and Courses of Action
D
Analysis and Comparison of COA T
Initiate Movement Recommendation or Decision A
T

Reconnaissance

Complete the Plan

Execute Plan

Supervise and Refine

1) Mission Analysis. The mission is normally received either

through an order issued from a higher unit or developed from an impending or
ongoing disaster. These disasters could be natural or man-made (Section 2-
2). Mission analysis will allow the commander to visualize the situation and
will determine what must be accomplished. He needs to find out: What should
be done, How should it be done, Who should do it, When should it be done,
What resources are needed, What costs are involved, and What outcomes
are achieved. The mission could be a response to the following disasters:

(a) Typhoons and Floods – Search and rescue to

victims bringing them to secured shelters or to safe and elevated areas;
Clearing of public roads and highways after the typhoon, water transport
during floods; or medical assistance to victims or evacuees.

(b) Volcanic eruption – Immediate or forced

evacuation of affected populace bringing them to safe areas, clearing of public
roads and highways; or medical assistance to evacuees.

(c) Earthquakes – Rescue to victims from landslide or

rubbles of collapsed structures; clearing of public roads and highways;
evacuation of victims to safe areas; or medical assistance to victims or
evacuees.

(d) Tsunamis – Search and rescue to victims; or

medical assistance to victims or evacuees.

RESTRICTED 4-7
 RESTRICTED

(e) Fire – Rescue to victims bringing them to safe

areas, provide area security, assist in firefighting operations or provide
medical assistance to victims or evacuees.

(f) Civil Strife – Mob control, security of vital

installations or commercial establishments and crowd control measures.

2) Implied and Specified Tasks Analysis. The result in the

mission analysis will be the basis for the implied and specific tasks. Specified
tasks are tasks stated by higher unit or as determined in the mission analysis.
Implied tasks are routine or inherent tasks that must be performed which are
implied by the situation, mission or purpose. Aside from the inherent
coordination with other agencies, preparation/organization of troops,
identification of emergency medical facilities for immediate evacuation, below
are examples of implied tasks to the following disasters:

(a) Typhoons and Floods - Provision for search lights,

equipage and support of troops, protection of troops, refueling of vehicles,
establishment of operations center compatible with the concerned disaster
coordinating council operations center.

(b) Volcanic eruption - Provision for gas mask,

preparation of transporting vehicles, equipage and support of troops,
protection of troops or refueling of vehicles which are part of SOP.

(c) Earthquake – Preparation of digging tools, cutting

tools and search dog, preparation of transporting vehicles and heavy
equipments, equipage and support of troops, protection of troops or refueling
of vehicles which are part of SOP.

(d) Tsunami - Preparation of rubber boats or

watercrafts, equipage and support of troops, protection of troops or refueling
of vehicles which are part of SOP.

(e) Fire - Provision for search lights, cutting tools and

gas masks, preparation of transporting vehicles and heavy equipment,
equipage and support of troops, protection of troops or refueling of vehicles
which are part of SOP.

(f) Civil strife - Provision of shield and gas masks,

preparation of transporting vehicles and water trucks, equipage and support of
troops, protection of troops or refueling of vehicles which are part of SOP.

3) Limitations, Constraints and Restrictions Analysis.

Limitation and constraints are restrictions on the freedom of action by the
commander from doing something as dictated by nature and the capability of
the unit. Example of constrain is the night movement during flood.

4-8 RESTRICTED
 RESTRICTED

4) Area Analysis. Area analysis will include identification and

location of vital installations and medical facilities (dams, power plants, oil
depots, military and police stations, schools, hospitals and churches), land
and water transportation routes, and power and communication lines. Area
analysis should also consider safe areas to bring casualties, areas that poise
hazard and areas for evacuations.

5) Troop Analysis. Troop analysis will include its capabilities,

the state and maintenance of supplies, equipage, morale and state of training,
experience in disaster response and their location and disposition.

6) Time Analysis. Time available is critical to disaster

response operations. Considerations should include available time for
preparation and planning, movement time from assembly area to the disaster
area, time to conduct specific tasks, delay times, and estimated time it will
take for another disaster to occur.

27. Post-Response Planning. An exhaustive continuing planning process

conducted to address the needs of the community for its recovery,
rehabilitation and future developments. It is emphasized that post-response
planning should result into long term and comprehensive community
development plans with the underlying purpose to prevent or mitigate the
effects of disasters or directly address the hazards that cause disasters. The
output could be in the form of new policies, legislation, zoning regulations,
infrastructure projects, forming of new organizations, restructuring of existing
organizations or the implementation of new programs. Problems encountered
or the inadequacies in the disaster preparedness plan shall be addressed in
the post response planning.

Section 4-6 Organization

The Army faces a critical condition in planning and organizing disaster

operations. It is indeed essential for Army units to organize their disaster
operations before handling its deployment.

A typical disaster response unit is a unique organization composed of

sub units coming from different functional areas grouped as one to form as a
homogenous response team. Units should be organized according to the
needs of the situation. The key elements that enable Army units to organize
and reorganize disaster operations include command and control systems
and the various command and support relationships that establish the
appropriate task organization.

28. Command and Control. The command and control system includes
the facilities, equipment, communications, procedures, and personnel
essential to a commander for planning, directing, and controlling operations of
assigned unit to pursue his assigned missions and objectives. The five
interrelated elements of command and control are as follows:

RESTRICTED 4-9
 RESTRICTED

a. Facilities. Command and control facility for disaster operations

at any level may follow the standard ranking. However, it is but practical to
facilitate coordination among other disaster action teams to co-locate at the
designated LDCC. This will enhance synchronization of effort, timely response
and unity of command. During disaster, it might not be possible to overextend
command and control facilities.

b. Equipment. Command and control equipment is provided by the

specific TOEs for each unit.

c. Communications. Command and control communications are

the means by which the command transmits and receives information and
orders. As such, having these means is vital to the commander and his staff in
the execution of disaster operations. The commander and staff must
understand the capabilities, limitations, and vulnerabilities of their
communications systems. They must expect and plan for interference during
disaster response.

d. Procedures. Command and control procedure is a mode or

course of action that describes how to perform a certain task and the steps to
follow in a specific order.

e. Personnel. The Commander has a staff to aid him in the

exercise of command. The staff consists of the personnel necessary to
perform command and control and supporting functions.

29. Command and Control System. Command and control is the process
through which the activities of units are directed, coordinated, and controlled
to accomplish its mission. Effective leadership is the main factor in achieving
the objectives of the operation. In disaster operations, leadership must be
supported by a reliable, flexible, secure, fast, and durable command and
control system. This system must communicate orders, coordinate support,
and provide direction to the unit even during adverse conditions.

30. Commander and Staff. Every unit in the Army has a responsible
leader in command who exercises command and control. Commanders have
their staff to assist in their exercise of command and control. The commander
achieves his goals by wisely using the unique abilities of his staff and
subordinate leaders.

31. Command Relationship. In disaster operations, task organizations

involving elements from various units are established through standard
command relationships with their inherent responsibility and authority.

a. Organic. A unit that forms an essential part of an Army unit. It is

listed in its table of organization and equipment or table of distribution and
allowances.

4-10 RESTRICTED
 RESTRICTED

b. Assigned. A unit that is placed in an organization on a

permanent basis. It is controlled and administered by the organization to
which it is assigned for its primary functions or the greater portions of its roles
and responsibilities.

c. Attached. A unit is placed in an organization on a temporary

basis. Although subject to limitations specified in the attachment order, the
commander to which the unit is attached exercises the same degree of
command and control, as well as responsibility for the attached unit as he
does over units organic to his command. However, responsibility for transfer
and promotion of personnel normally will be retained by the command to
which the unit is assigned. The attachment order should state clearly the
administrative and support responsibility variance of the gaining unit to the
attached unit.

d. Operational Control (OPCON). Those units that have been

provided to another commander to accomplish specific mission or tasks which
usually are limited by function, time, or location. The commander may deploy
the unit concerned and retain or assign tactical control of the unit. OPCON
does not include administrative and logistic responsibility, discipline, internal
organization, and unit training.

e. Operational Command (OPCOM). Operational Command is the

authority exercised by the commanders of unified and specified commands
over assigned forces. It is synonymous with OPCON.

32. Support Relationships. In disaster operations, Army units need to

establish support relationship among several Army units and other
organizations and agencies operating in the disaster area. Hence, internal
and external support relationships are established. Internal support
relationships are those that establish support responsibilities among Army
units. External support relationships are those that define the extent of
support from other agencies or organizations.

a. Internal Support Relationship. For the purpose of this manual,

Internal Support Relationship is the standard support relationship used within
the Philippine Army and other units of the AFP to establish the support
responsibilities between Army and AFP units as prescribed in the task
organization.

1) Direct Support. A unit in Direct Support gives priority of

support to a specific unit.

2) y unit.

b. External Support Relationship. External support relationship is

the type of affiliation that governs the support system and link of Army units
with other agencies and organizations outside the AFP.

RESTRICTED 4-11
 RESTRICTED

1) Coordinative. Coordinative support relationship is

established through constant coordination resulting to mutual understanding
with other agencies. This relationship becomes formal and binding through
MOUs or MOAs. However, in dire situations, the necessity to act becomes the
basis for such relationship.

2) Directive. The directive support relationship is established

by a competent authority to an agency to provide support to an Army unit
through an authoritative order or instruction. An example of this situation is
when a local chief executive issues specific order to the municipal engineering
office to provide transportation support to an Army unit in the locality.

3) Mandated. Mandated support relationship is an affiliation

prescribed by law. These are binding and obligatory in nature.

Section 4-7 Activities in Disaster Management Cycle

The role and contribution which the Army and the AFP can make in
dealing with disaster has long been recognized as laid down in the existing
laws of the country. To be fully effective in the dimensions of disaster
operations, capabilities must be fully understood by disaster coordinating
councils at various levels. Roles and responsibilities must be clearly defined in
their disaster preparedness plans.

The organization and management system of the Philippine Army

make its units well suited for operation under disaster conditions. In addition,
many of their normal activities parallel those in public emergency services.
Thus the Army can offer invaluable support in engineering, communications,
transport, rescue, emergency medical services, field sanitation, and so on.

The units available to provide these services are usually deployed

throughout the country and close to centers of population, which are where
disaster may have its most significant effect. These units have relatively quick
reaction capability and can respond rapidly, with appropriate command and
control, communications and administrative systems in a self-contained, self-
sufficient and mobile form. Personnel are trained with skills necessary to
perform their professional and functional activities and are practiced in
collaborative and co-ordinates action with flexible management system.

The nature and extent of Army assistance in disaster includes the

following:

a. Ground survey and assessment, especially to ascertain levels of

casualties and damage.

b. Reconnaissance in the disaster zone and of the routes within

and leading towards it.

4-12 RESTRICTED
 RESTRICTED

c. Organized and mobile manpower to assist in rescue.

c. Communications units to provide emergency radio and

telephone links.

d. Logistics units available to handle store and transport goods and

people over all types of roads and routes.

e. Emergency medical support to other agencies and civilian

services.

f. Aircraft for reconnaissance (Aviation Battalion).

g. Electrical power, engineering, long distance radio

communication.

h. Reconnaissance and reporting upon the damage caused and

the state of the infrastructure and communications and the use of warning to
endangered communities.

i. Rescue, evacuation and the provision of life support system

(medical aid, water, food and shelter) in emergency centers or camps.

j. Road clearance and the repair of breaks in road

communications using temporary bridging equipment.

k. Emergency communications (tactical radios) linking Disaster

Operations Centers at various levels of government.

l. Assistance in safeguarding/security of evacuated villages or

urban areas.

m. Transportation of emergency supplies.

To ensure availability of support of this kind from military units in

emergency situation, unit commanders, at all levels from national to local,
must be involved in the processes of disaster preparedness planning with the
civil government counterparts. Not only will such joint planning ensure that
each is aware of the requirement and responsibilities of the other but equally
important, the constraints and restrictions which may affect the provision of
assistance will be foreseen. In turn this awareness will, or should result in
various form of legislation both legal and fiscal to clear the way for effective
collaboration between the civil and military authorities. During disaster
preparedness planning, various tasks that may be undertaken by the Army
may be identified. The construction of retaining walls, flood protection
embankments, deepening of clearance of river channels and the development
of safe evacuation routes, are all tasks which have been undertaken by Army
engineers in support of national disaster prevention. Disaster preparedness
planning is likely to include logistic plans for the evacuation and emergency
support. Logistics is a military activity to which much time is devoted in the

RESTRICTED 4-13
 RESTRICTED

training of staff officers and practice in units. Logistic operations planning as

an element of disaster preparedness planning, is a responsibility which can be
usefully placed on the military member of any disaster preparedness planning
group. Provision should also be made to ensure that military transport is
available to support such logistic operations.

The Army can also be usefully involved at the community level in public
information and training programs. These activities can include first aid
training, simple field engineering relating to the provision of drinking water,
drainage and field hygiene. The Army can also be tapped to disseminate
essential requirements for emergency rescue utilizing helicopters.

Civil work projects can form important elements of disaster

preparedness planning in relation to rehabilitation and recovery. Many food
for work projects are engineering tasks related to local requirements to create
and develop tracks, roads, irrigation and drainage, river crossings and work of
this kind. Although the planning and financing of such work lie with the
community and the local government, the employment of military engineer to
provide technical skills and equipment, supervision of local labor and logistic
support can be an important element of such projects.

The potential of the Army and AFP to provide well organized, trained
and equipped support to the civil authorities and emergency services is clearly
recognized under the existing law of the country. As such, the Army and the
AFP have become important elements of disaster preparedness plans from
the national down to local levels.

4-14 RESTRICTED
 RESTRICTED

CHAPTER 5
DISASTER MANAGEMENT OPERATIONS LOGISTICS
AND SERVICE SUPPORT

Section 5-1 General

This chapter provides guidelines and principles for logistics and service
support for disaster management operations. It discusses the service support
characteristics and service support functions.

In emergency situations, logistics and service support play a vital role

to enable disaster response units to accomplish their tasks. Without logistics
and service support, disaster response units can only perform on a very
limited capacity or helplessly watch as disaster wreck havoc and destruction
to lives, properties and infrastructures. Logistics and service support provide
the capacity to disaster response units to perform their assigned tasks over
prolonged period. The bulk of logistics and service support for Army disaster
management units come from the local disaster coordinating council. Army
units only carry regular service support for initial engagement.

Section 5-2 Disaster Management Operations Service Support

Principles

Effective and efficient service support has several basic principles that
are applied in disaster management operations. These principles shall aid and
guide Army unit commanders and staff in planning to support disaster
response operations.

1. Anticipation. Is the ability to foresee future disaster operations and to

identify and determine requirements to support disaster management
operations. Although no planner can fully predict the course of disaster
management operations, units and personnel involved in logistics and service
support shall continually stay abreast with the disaster management
operations plans and shall be flexible enough to readily and rapidly tailor
available resources to meet the changing requirements.

2. Simplicity. Units and personnel in charge of providing logistics and

service support for disaster management operations shall avoid unnecessary
complexity. Planning and executing service support operations must be easily
understood with utmost practicality and economy.

3. Flexibility. Is the ability to adapt service support structures and

procedures to changing situations and disaster management operations
tasks. Service support plans and operations must be flexible enough to
achieve responsiveness and economy.

RESTRICTED 5-1
 RESTRICTED

4. Improvisation. Is the talent to create, enhance, arrange, fabricate

what is needed from what is available on site, or use indigenous materials.
Improvisation may be necessary to provide sustained and responsive support.
Since eventualities cannot be fully anticipated, service support units and
personnel must be prepared to seek and introduce innovative solutions.

5. Continuity. Is being able to provide continuous support to disaster

response units throughout the conduct of disaster management operations.
The minimum requirement for disaster management operations must be
attained ahead of disaster impact and follow on resources to sustain disaster
management operations must be provided as long as required.

6. Integration. Is the combination of logistics and service support with the

disaster management. As Army units conduct disaster response operations as
part of an inter-agency team, integration of support with other agencies is an
imperative. The Army integrates its service support operations with other
agencies in disaster management operations to take advantage of each
agency’s competencies and efficiencies, ensure that the highest priorities of
the inter-agency alliance are met, and avoid duplication and wasteful
competition for the same source of resources.

Section 5-3 Service Support Functions for Disaster Management

Operations

The Army’s Combat Service Support consists of eleven (11)

interrelated functions (refer to PAM 4-01). However, in disaster management
operations, not all these functions may be necessary, or may be too
insignificant for disaster response teams/units to accomplish their tasks.

7. Supply. Involves acquiring, managing, receiving, storing and issuing all

classes of supply required to equip and sustain disaster response
teams/units. It encompasses a wide range of functions from determination of
requirements down to the issuance of items to the end-user.

Sources of supplies for disaster management operations may be

categorized into two:

a. Organizational. From organic resources

b. External. Supplies provided by the LDCC, LGU or donors.

8. Maintenance. This function entails keeping disaster management

operations equipment in serviceable, operational condition, returning it to
service, and updating and upgrading its capabilities. It includes preventive
maintenance checks and services; recovering and evacuating disabled
equipment; diagnosing equipment faults; substituting parts, components and
assemblies; controlled cannibalization; exchanging unserviceable equipment

5-2 RESTRICTED
 RESTRICTED

for serviceable equipment; and repairing equipment. The ultimate key is to

anticipate requirements.

9. Transportation. Is moving and transferring units, personnel,

equipment, and supplies to support disaster management operations.
Transportation incorporates military, commercial, and civilian capabilities.
Transportation assets include motor, air and water modes and units; terminal
units, activities and infrastructure; and movement control units, activities and
systems.

10. Medical Support. Medical support is provided by preventing disease

and treating injuries incurred during disaster operations. The purpose is to
conserve the strength and maintain operational readiness of troops for
disaster operations. Medical Support for Army disaster operations requires
continuous planning, coordination, and training to ensure prompt, effective,
and unified health care efforts.

11. Field Services. Field Services involve feeding, clothing and providing
personal services for soldiers engaged in disaster management operations. It
consists of clothing exchange, laundry, shower, textile repair, and food
services. It requires continuous planning and coordination with different AFP
units, disaster coordinating councils, local government units and other
agencies within the locality.

12. Personnel Support. Personal Support provides all the activities and
functions aimed to sustain personnel manning of disaster response units. This
ensures availability of trained soldiers in the right strength when and where
they are required for disaster management operations.

RESTRICTED 5-3
 RESTRICTED

5-4 RESTRICTED
 RESTRICTED

CHAPTER 6
OTHER DISASTER MANAGEMENT SUPPORT OPERATIONS

Section 6-1 General

The conduct of disaster management operations is not exclusive to the

Philippine Army or the military organization. In most cases, Army units will be
working with other organizations be it government or non-government. In
which case, Army units engaged in disaster management operations shall be
able to provide assistance and support to other organizations.

Section 6-2 Policies and Legal Basis

Presidential Decree Number 1566 which was promulgated on June 11,

1978, calls for the “Strengthening of the Philippine Disaster Control Capability
and Establishing the National Program on Community Disaster
Preparedness”. This law prescribes the organization and membership of
various government agencies and units for disaster management operations.
It also includes NGOs and POs.

In line with Presidential Decree Number 1566 and the National Disaster
Preparedness Plan, the Armed Forces of the Philippines formulated the AFP
Standing Operating Procedure Number 15. This SOP serves as the AFP
Calamities and Disaster Preparedness Plan.

Section 6-3 Protocols and Practices

When conducting disaster management operations, Army units shall be

aware of the protocols and practices being observed by the local disaster
coordinating councils they are operating with. The unit commander shall be
responsible in obtaining the information upon deployment in the area in order
to ensure that these protocols and practices will be observed by his disaster
management units once response is made.

Section 6-4 Knowing Cultures and Traditions

In the same manner as in protocols and practices, the unit shall exert
all efforts to make each of its personnel familiar with the culture and traditions
in the area. This is to ensure that local customs and traditions are not violated
while conducting disaster response operations.

RESTRICTED 6-1
 RESTRICTED

Section 6-5 Support to other Local Disaster Operations Units

1. National. As prescribed in the law, the AFP shall support the National
Disaster Coordinating Council in the conduct of disaster management
operations. The Philippine Army shall support the NDCC by deploying
additional response units in support to the Regional Disaster Coordinating
Council as prescribed by the NDCC. Army units deployed in the different
regions in the country including Army Reservists shall participate in any
disaster management operation.

2. Regional. At the regional level, Army Divisions shall provide support to

the RDCC by deploying additional units to the Provincial Disaster
Coordinating Council as prescribed by the RDCC.

3. Provincial. At the provincial level, Army Brigades provide support to

the Provincial Disaster Coordinating Council by deploying additional response
units to the City or Municipal Disaster Coordinating Council as prescribed by
the PDCC.

4. City or Municipal. At the City or Municipal level, Army Battalions shall

provide support to the City or Municipal Disaster Coordinating Council by
providing additional response units to the Barangay Disaster Coordinating
Council as prescribed by the MDCC or CDCC.

5. Other Levels. Central agencies operating within a particular locality

shall operate as prescribed by the concerned local disaster coordinating
council during disaster response operations. Hence, Army units deployed in a
locality shall coordinate its efforts when conducting disaster management
operations with the local disaster coordinating council.

Section 6-6 Support to Allied/Friendly Countries

Army disaster management units, when called for, may participate in

disaster management operations in support to allied and friendly countries.
These types of operations shall be organized and coordinated through inter-
agency cooperation particularly the Department of Foreign Affairs and
Department of National Defense.

Section 6-7 Support to International Response Unit

Specialized Army units for disaster management operations may be

tasked to provide support to International Response Units. In such cases, the
deployment of these units outside the country shall be cleared by competent
authorities.

6-2 RESTRICTED
 RESTRICTED

CHAPTER 7
DISASTER MANAGEMENT OPERATIONS TRAINING AND
PREPARATIONS

Section 7-1 General

Disaster Management and Disaster Response Operations

require specialized skills for proactive and responsive actions to
counter or minimize the effects of disasters and to cope with disaster
impacts with ease. These highly specialized skills can only be
acquired, maintained and enhanced through systematic skills and
proficiency trainings.

Section 7-2 Definition of Terms

1. Training. A planned process to modify attitude, knowledge or

skill behavior through learning experience to achieve effective
performance in an activity or range of activities.

2. Education. Activities which aim at developing the knowledge,

skills, moral values and understanding required in all aspects of life
rather than a knowledge and skill relating to only a limited field of
activity.

3. Development. The growth or realization of a person’s ability

through conscious or unconscious learning.

Section 7-3 Disaster Management Operations Training Principles

4. Train as a Unit. Army units directly involved in the conduct of

disaster management or disaster response operations shall engage in
active disaster response unit training to develop cohesion and unit
integrity while it performs multi-dimensional functions that are
integrated into a system to counteract the effects of disasters.

5. Train as a Sub-unit. Training as a sub-unit enhances skill

specialization in a functional component capability. Training as a sub-
unit is essential in order to meet the expectations of the members of
other functional components for a particular job.

6. Train in Accordance with your Organizational Equipment.

Train with what you have. It is but practical that units should be trained
in accordance with organizational equipment. This ascertains the
maximum utilization of available tools for disaster response operations.

RESTRICTED 7-1
 RESTRICTED

It develops expertise and mastery of the equipment. It guarantees

proper use, care and maintenance of equipment.

7. Train to Improve Individual Skills. The skill of a team is as

good as the collective skill of each team member. Hence, each
individual shall train to continuously enhance their skills and meet the
required expertise.

8. Train with Other Stakeholders. To attain interoperability with

other agencies and disaster management organizations, Army units
shall be engaged in joint disaster response training. Training with other
local disaster response organizations enhances cohesion with these
agencies which can evolve through habitual association. This also
allows our units to understand the capabilities of other agencies.
Ideally, this training may culminate in an emergency drill organized by
the local disaster coordinating council.

9. Train Others to Train. A very important aspect of training is

training personnel to train other individuals. This principle ensures the
propagation of skills and expertise for disaster response.

10. Train for Competency. Each individual in a disaster response

team shall train for competence. The collective capacity of a team
largely depends on the competence of each member as a team player.
Training for competence guarantees the proficiency of the team as part
of a larger group for disaster response operations.

Section 7-4 Training Process/Analysis

11. Training Needs Analysis. The conventional starting point in the

training process is the Training Needs Analysis (TNA). The training
effort in many organizations is often wasted as a result of a poor TNA
or no TNA at all. The TNA can be likened to the examination of a
vehicle; no mechanic would troubleshoot until the defect had been
identified. Training Needs Analysis is the process by which the
instructional needs of the organization are identified and interpreted
prior to the preparation of a training plan. The Training Needs Analysis
is, therefore, an analysis of a particular set of needs; those which can
be met, at least partially, by a training solution.

12. Three Levels of Need Analysis. The most frequently cited

approach to needs analysis is that of McGehee and Thayer who
modeled the process on a three level view of the organization;
organization analysis, operations analysis and individual analysis.

a. Organization analysis. At this level, the analysis is

concerned with identifying where in the organization training is needed.

7-2 RESTRICTED
 RESTRICTED

It is concerned with macro training needs that emerge from a study of

the organization’s performance as a whole.

Organization analysis does not throw up actual training needs

but provides clear indications of where performance problems exist and
which areas of the organization would repay closer analysis.

Examination of the organization’s goals and climate is

particularly important in this respect. Unless the training is in line with
the organization’s goals it is unlikely to be perceived as effective.
Similarly, an organizational climate opposing to training will make it
difficult for the trainee to apply new knowledge and skills on the job.

b. Operations analysis. The focus of this level of analysis is

on a job or group of jobs. Organizations undertake operations analysis
for reasons other than training, for example, job evaluation, and
organization design.

The measurement of the knowledge, skills and abilities (KSA)

required to perform the job is important at this level of analysis. Prien
popularized the notion of KSA and defines them as follows:

1) Knowledge (K) is the foundation upon which

abilities and skills are built. It refers to an organized body of knowledge
usually of a factual or procedural nature, which, if applied makes
adequate job performance possible.

2) Skill (S) refers to the capacity to perform job

operations with ease and precision.

3) Ability (A) usually refers to cognitive capabilities

necessary to perform a job function. Most often, abilities require the
application of some knowledge base.

c. Individual/Person Analysis. At this level of analysis, the

question is measuring how well the incumbent is performing the job
under review. Techniques for this level of analysis include performance
appraisal data, job observation, interview, questionnaires, job tests,
critical incidents, and attitude surveys.

Section 7-5 Areas for Training

Areas for training shall be focused on disaster management

operations. This includes medical, engineering, search and rescue,
evacuation, relief assistance, public information, communications,
security, crowd control, firefighting, waterborne rescue, paramedics
and other emergency response actions.

RESTRICTED 7-3
 RESTRICTED

Section 7-6 Guide When to Conduct Training

13. Periodic. Regular trainings are scheduled on a regular basis. It

could be monthly, semi-annually or annually to continuously enhance
skills and knowledge of personnel.

14. Need Basis. Trainings are designed and scheduled to deal with
noted deficiencies among the personnel. This training is the outcome of
a Training Needs Analysis.

15. Unscheduled Training. This is a specialized training conducted

when a new task is expected to be undertaken which requires new sets
of knowledge and skills. This is also done when a new type of
equipment for disaster response is newly acquired and the personnel
need to be proficient in operating this equipment.

16. Maintenance. This is a scheduled training purposely to ensure

that the sets of skills and knowledge of the personnel of the disaster
response teams are maintained and the level of proficiency is retained
or even improved.

Section 7-7 Disaster Operations Training System

17. Background and Purpose of Systems Approach to Training.

There is a need to establish a training system. An established system
allows related aspects of training to be drawn together in a way that
Army’s current needs are met. For disaster management operations, a
Disaster Management Operations Training System shall be
implemented.

The main purpose of Disaster Management Operations Training

System (DMOTS) is to ensure the high performance of units or
personnel in their jobs under operational conditions. It provides a
common-sense method of determining training objectives. It is a
simple and logical process applicable to the individual and collective
training of Army personnel.

18. Training System Cycle. The Disaster Management Operations

Training System shall adopt the Philippine Army Training System
(PATS). This ensures congruence with the current training regulations
and other training programs implemented in the Philippine Army. The
DMOTS shall revolve on a five-phase training cycle as follows:
analyze, design, develop, conduct and evaluate.

a. Analyze. The analysis phase is characterized by a

performance analysis followed by the training analysis. Its aim is to
determine precisely what training is required to a perceived problem on

7-4 RESTRICTED
 RESTRICTED

performance and to redesign existing training programs to address

identified shortfalls and inadequacies or design new training programs
for the required performance output. As such, performance analysis is
required to determine the training and non-training solutions to the
performance problem. When a training solution is identified, training
analysis will be conducted to determine the need to redesign the
training.

b. Design. The design phase is concerned with the

conversion of the data gathered during the analysis phase into a
specification for training. In this phase, an evaluation chart containing
the learning outputs, assessment plan and the curriculum will be made
in accordance with the training design. These documents, together
with a proposed training program will be submitted to HPA (Attn: G3)
in order to develop the required training.

c. Develop. This phase determines the most efficient means

of presenting instruction and completing a plan for the efficient
management of the materials and logistics to be used. The major
output of this phase is the production of the Training Management
Package (TMP) to conduct the training.

d. Conduct. The conduct phase is concerned with the

delivery of training which has been designed and developed in the
previous phases. The major output in this stage is competent
personnel.

e. Validate. The validate phase seeks to find the answers to

two critical questions:

1) Does it solve the initial performance problem?

2) Has the training been transferred to the

workplace/site?

These questions will be answered through a

confirmed validation plan and validation report.
The final output of this phase is a revised report. It
must be noted that each phase in the DMOTS has
outputs. This is so designed in order to ensure
continuous improvement in training as well as for
resourceful management.

RESTRICTED 7-5
 RESTRICTED

ANALYZE

DESIGN
VALIDATE
REVISE

CONDUCT DEVELOP

Figure 7.1 Training Cycle System Diagram

19. Inter-operability. This is a state wherein Army disaster

response units can work hand-in-hand with other disaster response
organizations by adopting each others’ methods or procedures.
Various disaster response teams with different functions can be
integrated to perform a task.

20. Establish Cohesion and Teamwork. The unity among

different disaster response organizations is achieved through constant
and continuing cross-training.
21. Acquisition of New Skills and Methods. As each team cross-
train with other organizations, team members are able to observe other
organizations’ techniques and methods and subsequently assimilate
through continued practice.

22. High Operational Performance. Through cross-training, the

skills and capabilities of each team are enhanced collectively and
therefore results to more successful disaster response operations.

23. System Development. Cross-training also provides the

opportunity for various disaster response operations to develop
together with new methods and systems for more effective disaster
response.

24. Alliance-Building. Cross training is one of the means to

strengthen partnership with other disaster response organizations
particularly at the local levels.

7-6 RESTRICTED
 RESTRICTED

ABBREVIATIONS

ADB - Asian Development Bank

ASH - Army Station Hospital

CAG - Civil Affairs Group

CAU - Civil Affairs Unit

DEAR - Disaster Emergency Assistance and Rescue

DOTS - Disaster Operations Training System

DOH - Department of Health

ECB - Engineer Construction Battalion

FBGH - Fort Bonifacio General Hospital

FSSU - Forward Service Support Unit

ICRC - International Committee on the Red Cross

LDCC - Local Disaster Coordinating Council

LGU - Local Government Unit

LRCS - Lesotho Red Cross Society

MDCC- Municipal Coordinating Council

MDTAT - Mission, Disaster, Troops, Area, and Time

MOA - Memorandum of Agreement

MOU - Memorandum of Understanding

NBC - Nuclear, Biological and Chemical

NDCC - National Disaster Coordinating Council

NEDA - National Economic Development Authority

NGO - Non-Government Organization

OACPA - Office of the Army Chief Public Affairs

PADOU - Philippine Army Disaster Operations Unit

RESTRICTED
 RESTRICTED

PATS - Philippine Army Training System

PED - Post Engineer Detachment

PDCC - Provincial Disaster Coordinating Council

PIA - Philippine Information Agency

PNP - Philippine National Police

PNRC - Philippine National Red Cross

PO - Private Organization

POL - Petroleum, Oil and Lubricant

RCDG - Regional Community Defense Group

RDCC - Regional Disaster Coordinating Council

SOP - Standard Operating Procedure

SSBn - Service Support Battalion

TMP - Training Management Package

TNA - Training Need Analysis

TOE - Troop Organization and Equipment

TI&E - Troop Information and Education

UNDRO - United Nations Disaster Relief Office

UNHCR - United Nations High Commissioner for Refugees

RESTRICTED