Professional Documents
Culture Documents
PLANNING
GUIDEBOOK
As of January 2020
TABLE OF CONTENTS
INTRODUCTION ......................................................................................................................................................................1
ACRONYMS ............................................................................................................................................................................8
CONTINGENCY PLANNING
FORMS..................................................................................................................................28
CP Form 1: Hazard Analysis ..........................................................................................................................................28
CP Form 2: Anatomy of the Hazard ...........................................................................................................................31
CP Form 3A: Scenario Generation for Natural Hazard
..........................................................................................33
CP Form 3B: Scenario Generation for Human-Induced Hazard ..........................................................................34
CP Form 4A: Affected Population ..............................................................................................................................38
CP Form 4B: Breakdown of Affected Population ....................................................................................................40
CP Form 5: Cluster Identification .................................................................................................................................42
CP Form 6: Response Activities ....................................................................................................................................44
CP Form 7: Resource Inventory....................................................................................................................................46
CP Form 8: Resource Projection ..................................................................................................................................48
CP Form 9: Resource Gap Summary..........................................................................................................................50
CP Form 10: Emergency Operations Center ............................................................................................................52
CP Form 11: Incident Command System ..................................................................................................................55
REFERENCES ..........................................................................................................................................................................62
INTRODUCTION
The Philippines, situated along the Pacific Ring of Fire and the Typhoon Belt, is prone to
natural hazards such as typhoons, earthquakes, volcanic eruptions and tsunamis.
Furthermore, human-induced hazards such as crimes, terrorism and bombing also
threaten the lives of the communities.
Given our disaster risk profile, Republic Act (RA) 10121, otherwise known as the
“Philippine Disaster Risk Reduction and Management Act of 2010,” was enacted on 27
May 2010. Prior to the enactment of RA 10121, government actions relative to disaster
management had been largely concentrated on the response phase where most of the
resources are devoted to the needs of the affected population in the aftermath of a
disaster. Now, the new law paved the way for the institutionalization of the proactive
Disaster Risk Reduction and Management or “DRRM” approach, which is the
“systematic process of using administrative directives, organizations, and
operational skills and capacities to implement strategies, policies and improved
coping capacities in order to lessen the adverse impacts of hazards and the possibility
of disaster.”
As provided for in RA 10121, one of the known DRRM mechanisms that we can use is
Contingency Planning (CP). It is used to establish preparedness measures and arrange
response priorities ahead of time prior to a certain disaster. CP works well together
with other DRRM tools to help ensure the achievement of safer, adaptive and disaster-
resilient communities towards sustainable development.
With the growing significance of contingency planning, it has become applicable not
only in DRRM but also in Crisis Management (CM), which “involves plans and
institutional arrangement to engage and guide the efforts of government, non-
government, voluntary and private agencies in comprehensive and coordinated ways
to respond to the entire spectrum of crisis needs”. As such, CP has been considered
as one of the operationalizing tools of the National Crisis Management Core Manual
(NCMCM) of 2012, as provided for by the Executive Order (EO) No. 82 series of 2012.
In this context, an effort has been made to integrate the contingency planning process
for managing natural and human-induced hazards.
CP was introduced in the Philippines in early 2002 with the support of United Nations
High Commissioner for Refugees (UNHCR). Then Vice President and Department of
Social Welfare and Development (DSWD) Secretary, Gloria Macapagal- Arroyo, met with
former UNHCR High Commissioner Sadako Ogata to discuss the plight of internally-
displaced persons (IDPs) in Mindanao. UNHCR sent a mission to assess possible technical
assistance to the Government of the Philippines for the management of IDPs.
However, the circumstances regarding emergencies became even more complex with
the phenomenon of the “new normal”, characterized by the increasing frequency,
magnitude and scope of disasters, as well as the blurring of division between the
disasters caused by natural and human-induced hazards. Hence, the United Nations
Economic and Social Commission for the Asia and the Pacific (UN ESCAP) sent a
technical expert in the Philippines to help the government revisit the CP process.
Through the assistance of the technical expert, the National Disaster Risk Reduction
and Management Council (NDRRMC) through the Office of Civil Defense (OCD), the
Department of the Interior and Local Government (DILG), and the Department of
Social Welfare and Development (DSWD), in collaboration with the National Security
Council (NSC), worked to enhance the contingency planning manual of the NDCC,
with the objective of integrating the response arrangements for natural and human-
induced hazards into one reference. This collaboration resulted to the development of
the CP Guidebook to be used by all DRRM and CM practitioners.
The contents of the CP Guidebook are consistent with the existing policies and
guidelines of the NDRRMC, NSC, and other relevant institutions. It has been formally
adopted through the NDRRMC-NSC Joint Memorandum Circular No. 1 s 2016. As such,
the CP Guidebook contributes to better understanding of the roles of responsibilities of
individuals, offices or agencies involved in DRRM and CM to improve their
capacities to anticipate and respond.
To assess the effectiveness of CP, the OCD partnered with the Polytechnic University of
the Philippines in 2018 to conduct the study entitled “Effectiveness of Contingency
Planning during Typhoon Lawin (Haima) in selected LGUs in Region I and CAR.” Based
on the study’s findings, there is a need to develop a less technical CP template with
direction- setting and action-oriented elements.
Recognizing the importance of the study’s findings, the OCD, as the agency mandated
to standardize the CP process, updated the CP Guidebook and simplified the associated
forms and tools. The updated CP Guidebook will be implemented in 2020 and beyond.
2
DEFINITION OF TERMS
Affected Population: a group of people who (1) lives in a disaster-affected area and has
sustained direct disaster impacts (e.g. casualties and lost sources of livelihoods); (2)
lives within the disaster-affected area and sustained indirect disaster impacts (e.g.
disruption of basic services); or (3) lives outside the disaster-affected area and sustained
secondary disaster impacts (e.g. increase in market costs).
Coordination: system for gathering information, making decision, and recording action
that must be clear and known to all.
Command and Control: exercise of authority and direction by the Incident Commander
over resources checked-in to accomplish the objectives.
Cluster: a group of agencies that gather to work together towards common objectives
within a particular sector or area of concern in emergency response.The NDRP
enumerates the clusters at the national level, the lead and member agencies, as well
as their duties and responsibilities during emergencies.
Cluster Approach:a coordination system of the NDRRMC that aims to ensure a more
coherent and effective response by mobilizing groups of agencies, organizations and
non-government organizations to respond in a strategic manner across all key sectors
or areas of activity, each sector having a clearly designated lead, in support of
existing government coordination structure and emergency response mechanisms.
Contingency Plan (CP): a scenario-based plan for a specific and projected natural
and/or human-induced hazard. It aims to address the impacts of the hazard to people,
properties, and environment; and/or to prevent the occurrence of the emerging
threats through the arrangement of timely, effective, appropriate, and well-
coordinated responses as well as the efficient management of resources.
3
Contingency Planning: a management process that analyzes specific potential events
or emerging situations that might threaten society or the environment and
establishes arrangements in advance to enable timely, effective and appropriate
responses to such events and situations.
Crisis: also known as emergency; a threatening condition that requires urgent action
or response
Crisis Management (CM): involves plans and institutional arrangement to engage and
guide the efforts of government, non-government, voluntary and private agencies in
comprehensive and coordinated ways to respond to the entire spectrum of crisis needs.
Disaster Risk: the potential disaster losses in lives, health status, livelihood, assets and
services, which could occur to a particular community or a Society over some specified
future time period.
Disaster Risk Reduction: the concept and practice of reducing disaster risks through
systematic efforts to analyze and manage the causal factors of disasters, including
through reduced exposures to hazards, lessened vulnerability of people and property,
wise management of land and the environment, and improved preparedness for
adverse events.
Disaster Risk Reduction and Management (DRRM): the systematic process of using
administrative directives, organizations, and operational skills and capacities to
implement strategies, policies and improved coping capacities in order to lessen the
adverse impacts of hazards and the possibility of disaster. Prospective disaster risk
reduction and management refers to risk reduction and management activities that
address and seek to avoid the development of new or increased disaster risks,
especially if risk reduction policies are not put in place.
4
Disaster Risk Reduction and Management Council (DRRMC): organized and authorized
body of government agencies, to include the civil society organizations and private
sector, mandated to undertake DRRM activities from the national to local levels. The
composition, powers and functions of the DRRMC are defined in RA 10121.
Early Warning Signs: observable or science-based information that will indicate the
unfolding of an event or incident.
Emergency Operations Center (EOC): a designated facility that is staffed and equipped
with resources to undertake multi-stakeholder coordination, manage information, and
facilitate resource mobilization in anticipation of and/or to support incident operations.
Exposure: the degree to which the elements at risk are likely to experience hazard
events of different magnitudes.
Goal: an observable and measurable end result having one or more objectives to be
achieved within a more or less fixed timeframe.
Incident Management Team (IMT): a team composed of Command Staff and General
Staff who will take the lead in ICS implementation.
Mitigation: the lessening or limitation of the adverse impacts of hazards and related
disasters.
Natural Hazard: natural process or phenomenon that may cause loss of life, injury or
other health impacts, property damage, loss of livelihoods and services, social and
economic disruption, or environmental damage.
5
Need: a motivating force that compels action for its satisfaction, range from basic
survival needs satisfied by necessities, to cultural, intellectual, and social needs.
Rapid Damage Assessment and Needs Analysis (RDANA): a disaster response tool that
is used immediately in the early emergency phase to determine the extent of impacts
and assess the priority needs of the communities.
Risk: the combination of the probability of an event and its negative consequences.
Root Causes: the underlying natural or human-induced sources or origins of the hazard
Sector: distinct and large subdivision defined on the basis of some common factor
6
Threat: an indication of something undesirable coming; a person or thing as a likely
cause of harm; refers to people, phenomena, situations and trends in the environment
that can adversely affect the welfare and well-being of the people.
7
ACRONYMS
CBMS: Community Based Management Information System
CLUP: Comprehensive Land Use Plan
CM: Crisis Management
CMC: Crisis Management Committee
CP: Contingency Planning
CSO: Civil Society
Organization DRR: Disaster Risk
Reduction
DRRM: Disaster Risk Reduction
and Management
DRRMC: Disaster Risk
Reduction and Management
Council
DRRMF: Disaster Risk Reduction
Management Fund
EO: Executive Order
EOC: Emergency Operations
Center
GAA: General Appropriations
Act
HADR: Humanitarian
Assistance and Disaster
Response
IMT: Incident Management
Team
IC: Incident Commander
ICS: Incident Command
System
IHA: International
Humanitarian Assistance
INGO: International Non-
Government Organization
IRR: Implementing Rules and
Regulations
JMC: Joint Memorandum
Circular 8
LDRRMF: Local Disaster Risk
Reduction and Management
Fund
PDRA: Pre-Disaster Risk Assessment
PDRRMS: Philippine Disaster Risk Reduction and Management System
PSF: Presidential Social Fund
PWD: Persons with
Disabilities QRF: Quick
Response Fund RA: Republic
Act
RDANA: Rapid Damage
Assessment and Needs
Analysis
RO: Responsible Official
SFDRR: Sendai Framework
for Disaster Risk Reduction
SOP: Standard Operating
Procedure
SUC: Schools, Universities,
and Colleges
UNESCAP: United Nations
Economic and Social
Commission for Asia and the
Pacific
UNHCR: United Nations High
Commissioner for Refugees
UNISDR: United Nations
International Strategy for
Disaster Reduction
9
OVERVIEW OF CONTINGENCY PLANNING
Definition of Contingency Planning
Recognizing the need to develop contingency plans for both natural and human-
induced hazards, it is indicated in item 6.1.1 of the NDRRMC-NSC JMC No. 1, 2016 that
“All DRRMCs at all levels, CMCs at the local level, and individual government
departments, bureaus, agencies, offices, units, and instrumentalities shall formulate
contingency plans for natural and/or human-induced hazards appropriate to their areas
in accordance with the prescribed Contingency Planning Guidebook.” Moreover, in
item 6.1.2, “Other governance stakeholders, including civil society organizations and
the private sector, are
10
enjoined to adopt the Contingency Planning Guidebook for formulation of their
respective contingency plans.”
Further, under the NDRRM Plan 2011 – 2028, Thematic Area 2: Disaster Preparedness,
Outcome 10, it is also indicated that there shall be “Developed and implemented
comprehensive national and local preparedness and response policies, plans, and
systems.”
Executive Order No. 82, s 2012: Operationalizing the Practical Guide for National
Crisis Managers and the National Crisis Management Core Manual; Establishing
National and Local Crisis Management Core Manual; Establishing national and
Local Crisis Management Organizations; and Providing Funds Therefor
NDRRMC Memorandum No. 23, s 2014: National Disaster Response Plan for
Hydro- meteorological hazards
NDRRMC Memorandum No. 22, s 2017: NDRRMC National Disaster Response Plan
for Hydro-Meteorological, Earthquake, Tsunami, and Consequence Management
for Terrorism Related Incidents
NDRRMC Memorandum No. 50, s 2017: Checklist of Actions and Milestones for
Earthquake Preparedness
11
Importance of Contingency Planning
It is a common fact that disasters exist in the Philippines primarily because of its
geographic location within the Pacific Ring of Fire and Pacific Typhoon Belt. The
Philippines is currently the 9th country at risk to disasters worldwide, based on the World
Risk Index Report 2019.
For a disaster prone country like the Philippines, CP yields a number of benefits:
Natural hazards such as tropical cyclones, volcanic eruptions, floods, El Niño and La
Niña, earthquakes, tsunamis, storm surge, landslides and lahar/mud flows
Planned events and high density population gatherings such as fiestas, concerts,
anniversaries, conferences, etc.
The existence of natural and human-induced hazards, even the preparations for planned
events, prompts the need for CP. Some early warning signs usually precede an event that
requires emergency response. Often, it is simply a matter of good knowledge mixed
with experience that encourages one to recognize the need to do planning. However,
even if one is not sure that such event may indeed occur, it is still best to formulate a
CP. In other words, the moment we have projected a disaster or an incident, we
should start formulating the CP now. As rule of thumb, “It is better to plan when it is
not needed, than not to have planned when it was necessary.”
Further, there should only be one CP for every hazard. If various kinds of hazards exist,
CPs must be formulated for each. If there are secondary hazards resulting from one
specific hazard, these must be specified in one CP as part of the scenario generation.
12
Stakeholders involved in Contingency Planning
Practically speaking, all government and private entities are the stakeholders involved
in conduct of contingency planning and have the responsibility to formulate their
CPs. Specifically, here are the stakeholders involved in contingency planning across all
levels of governance:
Member agencies of the National/ Regional Disaster
Risk Reduction and Management Council (DRRMC)
13
Local DRRM Officers (focal persons in DRRM)
Sanggunian members
Division/unit heads
14
Common Myths and Facts on Contingency Planning
Myths Facts
CP is expensive CP requires only an appropriate funding
source.
CP is too technical. External expertise is There are trained local CP experts and
needed. facilitators.
Once the contingency plan has been Contingency plan needs to be reviewed
formulated, only little effort is needed. and updated regularly.
CP is not an integral part of our work. CP should form part of the regular
planning activities.
CP is sensitive, confidential and CP should be prepared, developed, and
threatening. It should be done in secret. disseminated to concerned agencies.
CP encourages displacement. CP helps to prevent displacement.
CP is product oriented. CP is not a product for sale.
CP process is too tedious. Just give us a CP is not like any other plan. Multi-
template for us to fill-in on our own. stakeholder involvement and technical
expertise are needed.
15
FORMULATING THE CONTINGENCY PLAN
Although a mechanism for disaster response, CP formulation remains as a disaster
preparedness activity. It works best if sensitization activities are successfully done
during peace time such as environmental scanning, awareness raising, risk
assessment and administrative preparations.
Before proceeding with the planning process, it is important to “sell the idea” of CP to
officials and the relevant authorities. It must be made clear to them that formulating CP
is part of the DRRM mandate as provided for in RA 10121 and other issuances.
However, it is also important to emphasize the protection of human lives from worst-
case disaster situations as among the top convincing reasons why there is a need for
CP. The buy-in and approval of the authorities will provide support and justification to
do the next steps required for the formulation of CP.
Chapter I. Background
Arrangements
Annexes
16
Chapter I. Background
A. Introduction
Write a narrative to describe the overall profile of the LGU/ agency/ office/
organization. Refer to existing relevant sources in coming up with the narrative.
B. Hazard Analysis
1. Accomplish CP Form 1: Hazard Analysis. This will allow identification and analysis
of
hazards based on their “Probability” and “Impact.”
2. Write a narrative to further describe the results of the accomplished form. Refer
to existing relevant sources in coming up with the narrative.
3. State the specific hazard to plan for. This is the hazard that ranked as number
one in the accomplished CP Form 1.
2. Accomplish CP Form 2: Anatomy of the
Hazard for the selected hazard to be IMPORTANT
included as part of Chapter I.
There are instances in which the
3. Write a narrative to further describe the hazard to plan for is already pre-
results of the accomplished form. Refer to determined based on
existing relevant sources in coming up with management or organizational
the narrative. priorities. In such case there is no
need to do CP Form 1.
17
D.
Scenario
1. Develop the scenario for the identified
hazard, which will be the focus of the CP. IMPORTANT
a. If planning for a natural hazard, CP is focused on planning for
accomplish CP Form 3A: Scenario the worst-case scenario.
Generation for Natural Hazard However, other scenarios are
still useful as they provide
b. If planning for a human-induced layers of benchmarking
hazard, accomplish CP Form 3B: for preparedness and
Scenario Generation for Human- response operations.
Induced Hazard
2. Determine the projected number of individuals
who will be affected by the hazard based on worst-case scenario. For this
purpose, accomplish CP Form 4A: Affected Population. If there is a
need to do disaggregation, accomplish CP Form 4B: Breakdown of Affected
Population, as appropriate.
3. Write a narrative to further describe the results of all the accomplished forms.
Refer to existing relevant sources in coming up with the narrative.
A. Goal
State the overall goal or the end state that the CP aims to achieve.
B. Objectives
Enumerate the objectives of the CP to achieve the desired goal. The objectives must
be stated SMARTER.
SMARTER OBJECTIVES
S – pecific : clearly and exactly presented or stated;
M – easurable precise or exact
A– : an adequate or due portion is quantifiable
ttainable R : capable of being achieved
– ealistic : resembles real life; very much like in the
T – ime actual setting
bound E – : a period of time is planned for a particular
xtending action
R – ewarding : can be continued and replicated in other
situations
: recompenses effort; generates feeling of
fulfillment
18
Chapter III. Response Arrangements
A. Response Clusters
IMPORTANT
1. Organize the Response
that will Clusters The National Disaster Response Plan
providers serve (NDRP) pre-identifies the Response
situation. as the Clusters, with corresponding heads and
accomplishresource
CP Formduring5: Cluster members:
Identification. This willthe
enable the Food and Non-food Education
Items Search, Rescue and
worst-case
determination of For Response Health Retrieval
this
Clusters, with their corresponding Protection Management of
Camp Coordination the
Dead and the Missing
heads and members. and Management Law and Order
purpose, Logistics Phil. International
Emergency Humanitarian
2. For each Response Cluster, Telecommunications Assistance
formulate a separate and detailed However, the local authorities have the
Implementation Plan. The liberty to organize their own Response
contents of the Implementation Clusters based on needs.
Plan are as follows:
a. Lead and Members: Enumerate the lead and members of the Response
Cluster based on CP Form 5.
b. Scenario: Describe the specific scenario that will be faced by the Response
Cluster. The said scenario must be consistent with the worst-case.
c. Objectives: Enumerate the specific objectives for the Response Cluster. These
should be in accordance with the CP goal and general objectives.
d. Roles and Responsibilities: Enumerate the roles and responsibilities of the head
and members of the Response Cluster. Protocols may be added as well.
2. Develop and illustrate the organization structure showing the persons in charge of
manning the EOC. Here is an example of a typical organization structure for the
EOC. The structure may vary depending on the organization:
For reference, here are the roles and responsibilities for each position within the
EOC:
3. Write a narrative to further describe the results of the accomplished form and the
organization structure of the EOC.
20
C. Incident Command System (ICS)
For reference, here are the general roles and responsibilities of the
IMT:
POSITION ROLES AND RESPONSIBILITIES
Incident Commander Overall manages the incident
Command Staff
Public Information Officer Interacts with the media and public
Safety Officer Assesses all operational safety concerns
Liaison Officer Point of contact for other agencies
General Staff
Operations Section Chief Implements tactical activities
Planning Section Chief Collects information and prepares reports
Logistics Section Chief Provides facilities and services support
Finance and Administration Section Chief Monitors and approves expenditures
3. Write a narrative to further describe the results of the accomplished form and the
organization structure of the IMT.
21
D. Interoperability
1. Illustrate using a diagram the interoperability of the EOC, ICS and clusters. Here
is an example:
22
Chapter IV. Activation
Illustrate using a flow chart to indicate how the CP will be activated for
implementation. The flow chart must clearly depict the activation triggers. Here are
some examples of triggers that are commonly used for DRRMCs or CMCs:
Non-Activation of the CP
There may be no need to activate the CP if the predicted hazard or event did not
take place or the situation is no longer threatening.
23
Sample CP Activation Flow Chart for
Typhoon
START
PAGASA
forecasts
Typhoon
DRRMC
conducts
PDRA
Typhoon makes
landfall. DRRMC
conducts RDANA
1
2
Yes Activate No
EOC on red EOC on blue
contingency
alert status alert status
plan?
RO convenes Responders
the clusters at conduct normal
the EOC 3
operations using
ICS
RO mobilizes and
deploys IMT Clusters provide
continuous support
to responders
Clusters and IMT
operate based on
contingency plan
No
Situation
3
normalize
No
Situation
improved? 1 Yes
IC recommends
Yes demobilization
IMT recommends
deactivation of RO approves recommendation
contingency plan for demobilization
END
24
Sample CP Activation Flor Chart for Planned
Event
START
DRRMC activates
contingency plan
RO convenes the
clusters at EOC
RO mobilizes and
deploys IMT
No
Planned
event
Yes
IMT recommends
deactivation of
contingency plan
RO directs deactivation
of contingency plan
OpCen on white
alert status
END
25
Annexes
Working Group
An important part of the CP is the identification of the Working Group who will be the
overall responsible for the completion of the plan. This group will initiate the conduct of
follow-through activities such as testing, evaluation, packaging, updating and
improvement.
The Working Group will be responsible for the refinement, finalization, testing, evaluation,
packaging, updating and improvement of the CP.
2. Enumerate the duties and responsibilities of the working group. For example:
3. Specify the members of the working group and the contact details. The working
group is typically composed of the following:
Head Overall in charge; monitors the CP progress; initiates the conduct of
meetings to review, evaluate and update the CP; disseminates updates
on the CP to concerned stakeholders; leads the conduct of exercises to
test the CP.
Facilitator Facilitates meetings, workshops and exercises; drives the contingency
planning participants to achieve the target outputs.
Secretariat Documents and assimilate comments and recommendations during
meetings, workshops and exercises into the CP; provides other secretariat
Services.
Cluster Facilitates the completion of detailed implementation plans for the
Representatives Respective Clusters, including the accomplishment of the CP forms;
ensures the availability of data for the specific Response Cluster;
coordinates with other clusters to ensure consistency of implementation
plans.
IMPORTANT
Members and functions of the working group may be added, as
appropriate to the agency or organization.
26
Other Annexes
Aside from the Working Group, there are many important annexes that form part of
the contingency plan. Here are some examples:
Once all the contents of the CP have been completed, the Working Group will endorse
and submit the plan to the relevant authorities for approval, i.e. Chairperson of DRRMC,
Crisis Manager of CMC, or head of office/agency. During the endorsement, the working
group should provide enough justification to the authorities that in case such
emergency takes place, the amount of resources specified in the plan will be required.
Also, it is highly recommended to have a formal issuance that officially approves the
plan. In the said issuance, it should be stated that the CP is approved as a “living”
document.
Once completed and approved, the CP does not end within the four corners of the
planning room or kept in drawers and bookshelves. It does not also mean that the plan
is ready for immediate execution. Subject the plan for continuous testing,
evaluation, assessment, updating and improvement. There should be continuous risk
assessment to measure its applicability in a real worst-case situation. The scenarios
and response arrangements indicated in the CP must be updated as necessary.
Upon detection of early warning signs for the occurrence of a disaster or crisis, a CP
can swiftly be transformed into a response plan since it already identifies all the
response arrangements including standby resources. The response actors shall perform
their roles and responsibilities as specified in the CP.
27
CONTINGENCY PLANNING
FORMS
CP Form 1: Hazard
Analysis
HAZARD PROBABILITY IMPACT AVERAGE RANK
PROBABILITY +
RATE REMARKS RATE REMARKS
IMPACT 2
2
8
Instructions:
IMPORTANT
1. List all the possible hazards that may affect the
LGU/ community/ agency/ office/ organization The rating scales below
under the column “Hazard.” are just examples. In
actual planning, refer to
2. Under “Probability”, provide corresponding rating on significant historical
the frequency of occurrence of the hazard based trends and data on past
on the agreed rating scale. Indicate other disasters or crises to
relevant details under “Remarks”, as necessary. develop the probability
and impact rating scales.
3. Under “Impact”, provide corresponding rating on
the severity of the effects of the hazard based on Planners can also refer
the agreed rating scale. Indicate other relevant to scientific data such
details under “Remarks”, as necessary. as hazard maps and
Rapid Earthquake
4. Under “Average”, calculate the average rating by Damage Assessment
adding the probability and impact ratings, then System outputs for
divide by 2. earthquakes.
5. Under “Rank”, rank the hazards with the highest Overall, coming up with
average as 1, the next highest average as 2, and the ratings should be
so on. The hazard with the highest average will be based on the consensus
the priority for Contingency Planning. of the planners and
experts.
Sample Rating Scale for
1 2 Probability 3 4 5
Most Unlikely Unlikely Likely Very Likely Almost Certain
The event may The event could The event might The event will The event is expected
occur only occur at some occur at some probably occur in to occur in many or
in exceptional time, time, most or many cases most cases
cases but and probably will
probably will not
No casualty Injured: 1-5 Injured: 1-20 Injured: 1-50 Injured: 50 & above
(dead, injured, Dead: 0 Dead: 1-2 Dead: 1-20 Dead: 21 & above
missing) Missing: 0 Missing: 1-2 Missing: 1-20 Missing: 21 & above
No damage to Minor loss and/or Significant loss Major loss and Catastrophic loss and
property damage to and/or damage damage to damage to property
property (up to to property (Php property (Php 3- (Php 10M above)
Php 500,000) 500,001-3M) 10M)
2
9
Example:
Cp Form 1: Hazard
Analysis
HAZARD PROBABILITY IMPACT AVERAGE RANK
PROBABILITY +
RATE REMARKS RATE REMARKS
IMPACT 2
30
CP Form 2: Anatomy of the
Hazard
31
Detailed Instructions:
5. Under “Existing Mitigating Measures”, describe the existing measures of the LGU/
community/ agency/ office/ organization to prevent or mitigate the impacts of
the disaster.
Example:
3
2
CP Form 3A: Scenario Generation for Natural
Hazard
No. of Dead
No. of Injured
No. of Missing
EFFECTS
Communication
Power/ Electricity
Transportation
Environment
Response Capabilities
Government Trust
Others
Others
Others
33
CP Form 3B: Scenario Generation for Human-Induced
Hazard
No. of Dead
No. of Injured
No. of Missing
EFFECTS
Communication
Power/ Electricity
Transportation
Environment
Response Capabilities
Government Trust
Others
Others
Others
34
Instrutions:
IMPORTANT
1. Use CP Form 3A for natural hazard and CP Form 3B
for human-induced hazard. No need to fill-up all
fields. Only accomplish
2. Under “Particulars” are the conditions to describe those that are
how the situation will unfold in case the hazard relevant.
affects the LGU/ community/ agency/ office/
organization. The fields can be
Describe each condition as “Bad”, “Worse” or customized depending
“Worst” for CP Form 3A and “Most Likely”, “Best”, or on the situation, as
“Worst” for CP Form 3B. long as it is agreed
upon by the planners.
CP Form 3A CP Form 3B
(For Natura-Hazardl) (For Human-Induced Hazard)
Bad a severe situation that can Most Likely the normal situation that can
possibly occur basedon possibly occur based on typical
scientific security interventions
information, historical experience,
and consensus of the planners.
Worse a situation more severe than the Best the most desirable situation that
bad scenario that can possibly be can possibly occur given the
occur based on heightened security interventions
scientific information, historical and counter-measures to
experience, address
and consensus of the planners. the threat. However, the crisis
may still occur because the
effects of security interventions
and counter-measures are still
uncertain.
Worst the most severe situation that can Worst the more severe situation that
possibly to occur based on can possibly to occur when all
scientific information, historical security interventions and
experience, and consensus of the counter-measures
planners. are compromised.
.
3
5
Example:
CP Form 3A: Scenario Generation for Natural
Hazard
PARTICULARS
BAD WORSE WORST
(CAN BE
CUSTOMIZED)
Tropical cyclone made landfall with
Tropical cyclone made landfall with
Tropical cyclone made landfall with maximum sustained wind of more
maximum sustained wind of 118 to
maximum sustained winds of 62 to 117 220 kph, categorized as super
General Description of Event 220 kph, categorized as typhoon.
kph, categorized as tropical storm. Around typhoon. There is possible
Around 50% of the area in the
20% of the area in the locality is submerged occurrence of storm surge. Around
locality is submerged in flood.
in flood. 80% of the area in the locality is
submerged in flood.
EFFECTS
Power/ Electricity No power interruption Power is interrupted in some areas. Total power shutdown
36
CP Form 3B: Scenario Generation for Human-induced
Hazard
PARTICULARS MOST LIKELY BEST WORST
(CAN BE CUSTOMIZED) (NORMAL ACTIVITIES) (WITH COUNTER-MEASURES)
A bombing incident using IEDs Perpetrators are unable to plant IEDs are detonated one after the
takes place to disrupt the or detonate IEDs due to target other on specific targets such
ongoing hardening measures on the part malls, bars, restaurants, and other
General Description of Event international conference, of the security and police forces. business establishments. There are
discredit the government, also attacks on critical
and gain attention by creating infrastructures such as ports.
fear and chaos.
No. of Missing 0 0 0
EFFECTS
Roads near the impact areas are
Transportation No effects No effects impassable due to chaos and
debris pile up.
Government trust is observed. Government trust is observed. People lose confidence on the
Government Trust People are cooperative to the People are cooperative to the government. Higher government
government. government. authorities require intervention.
37
CP Form 4A: Affected
Population
DISPLACED POPULATION
NO. OF INDIVIDUALS (FOR LOCAL GOVERNMENT UNITS ONLY)
AREA/ LOCATION
AFFECTED NO. OF INDIVIDUALS INSIDE NO. OF INDIVIDUALS OUTSIDE REASONS FOR
EVACUATION CENTERS EVACUATION CENTERS DISPLACEMENT
TOTAL
38
Instructions:
IMPORTANT
1. Under “Affected Area/Location”, specify
the area/location (such as barangay, Displaced population only applies for
street, floors, building location, room LGU-based CPs since they manage
number) that will be affected by the evacuation centers for the displaced
hazard. population.
Under “No. of Individuals Inside Evacuation Centers” are those who are displaced
and temporarily moved to evacuation centers established by the LGUs.
On the other hand, under “No. of Individuals Outside Evacuation Centers” are those
who were displaced but did not stay in evacuation areas like taking shelter in
their relatives’ houses, etc.
Under “Reasons for Displacement”, indicate the factors that will lead to the
displacement of the population affected.
Example:
DISPLACED POPULATION
NO. OF (FOR LOCAL GOVERNMENT UNITS ONLY)
AREA/
INDIVIDUALS NO. OF INDIVIDUALS NO. OF INDIVIDUALS
LOCATION REASONS FOR
AFFECTED INSIDE EVACUATION OUTSIDE EVACUATION
DISPLACEMENT
CENTERS CENTERS
3
9
CP Form 4B: Breakdown of Affected
Population
BREAKDOWN
NO. OF (FILL-UP ONLY WHEN APPROPRIATE)
AREA/ INDIVIDUALS CHILDREN ELDERLY PERSONS WITH PREGNANT OTHERS
INFANT ADULT
LOCATION AFFECTED (0-11 MONTHS)
(17 YO &
(18-59
(60 YO WITH SICKNESS WOMAN
BELOW) & DISABILITY
YO)
ABOVE) (PWD)
M F M F M F M F M F M F M F
TOTAL
40
Instructions:
IMPORTANT
1. Use CP Form 4B to specify the breakdown of the composition of the affected
population. CP Form 4B is optional.
Some CPs may not
2. For every number of individuals affected, provide data disaggregation. In the necessarily need detailed
absence of actual data, use estimates or percentages instead. breakdown of affected
population.
Example:
CP Form 4B: Breakdown of Affected
Population
BREAKDOWN
NO. OF (FILL-UP ONLY WHEN APPROPRIATE)
AREA/ INDIVIDUALS CHILDREN ELDERLY PERSONS WITH PREGNANT OTHERS
INFANT ADULT
LOCATION AFFECTED (0-11 MONTHS)
(17 YO &
(18-59
(60 YO WITH SICKNESS WOMAN
BELOW) & DISABILITY
YO)
ABOVE) (PWD)
M F M F M F M F M F M F M F
41
CP Form 5: Cluster
Identification
AGENCIES/OFFICES INVOLVED
(NUMBER OF FIELDS CAN BE INCREASED OR REDUCED)
RESPONSE CLUSTER LEAD AGENCY/OFFICE
42
Instructions:
IMPORTANT:
1. Under “Response Cluster”, list the
organized Response Clusters that will be This process requires coordination
required to address the needs that will primarily with the local authorities
be required by the worst-case within
the area of responsibility to determine
scenario. It is important to note that the Response Clusters.
Response Clusters to be listed are
based on what the worst-case scenario For reference, below is the list of
demands. Response Clusters pursuant to the
NDRP. While the Response Clusters
2. Under “Agencies/Offices Involved”, are pre- identified at the national level,
indicate the name of agencies/offices
involved in the CP process. Put a the local authorities are provided the
“check” mark under the name of autonomy to organize their own
agency/office that will have a role to Response Clusters:
Food and Non-food Education
play for the corresponding Response Items Search, Rescue an
Cluster.
Health
Protection
Retrieval
Management of t
Camp Coordination Dead and the Mis
and Management Law and Order
3. Under “Lead Agency/Office”, choose Logistics Phil. International
among the agencies/offices the one Emergency Humanitarian
that will act as the lead to supervise Telecommunications Assistance
the cluster.
Example:
CP Form 5: Cluster
Identification
AGENCIES/OFFICES INVOLVED
LEAD
RESPONSE CLUSTER (NUMBER OF FIELDS CAN BE INCREASED OR REDUCED)
AGENCY/OFFICE
CDRRMO CHO CSWDO CEO AFP PNP BFP
4
3
CP Form 6: Response
Activities
RESPONSE CLUSTER
4
4
Instructions:
o In the blank next to “D”, indicate D minus (-) a given number N or D plus
(+) a given number N:
3. Under “Response Activities”, specify the activities of the Response Cluster that
must be accomplished for the identified timeframe. The activities should be
sequential and should be stated as generic as possible.
Example:
4
5
CP Form 7: Resource
Inventory
RESPONSE CLUSTER
AGENCY/OFFICE RESOURCE QUANTITY REMARKS
4
6
Instructions:
IMPORTANT
1. Indicate the name of the Response Cluster on the
above portion of the form. All Response Clusters
specified in CP Form 5
2. Under “Agency/Office”, specify the agency/office as will have the
member of the Response Cluster. corresponding CP Form
7.
3. Under “Resource”, indicate the existing personnel, teams, vehicles or major
equipment that can be committed by the member of the Response Cluster.
5. Under “Remarks”, provide other important information about the resource such as
location where it can be accessed, sub-classification of the resource, etc.
Example:
IMPORTANT
Adhering to the principles of Incident Command
System, indicate only the personnel, major equipment
and vehicles as resources. Do not indicate small
tools as resources such as tables, chairs, office
supplies, etc.
4
7
CP Form 8: Resource
Projection
RESPONSE
CLUSTER
ACTIVITIES/ SOURCES COST ESTIMATES SOURCE OF FUNDS
GAPS
RESOURCE NEED HAVE (FILL-UP ONLY (FILL-UP ONLY WHEN
(NEED – HAVE) TO FILL THE GAPS WHEN APPROPRIATE)
APPROPRIATE)
TOTAL
4
8
Instructions:
IMPORTANT
1. Indicate the name of the Response Cluster on the
above portion of the form. All Response Clusters
specified in CP Form 5
2. Under “Resource”, indicate the existing personnel, will have the
teams, vehicles or major equipment that will be corresponding CP Form
required for the operations. 8.
4. Under “Have”, indicate how many resources are currently available. Refer to CP
Form 7.
Example:
CP Form 8: Resource
Projection
RESPONSE Search, Rescue and Retrieval
CLUSTER
ACTIVITIES/ SOURCE OF
GAPS COST ESTIMATES
RESOURCE NEED HAVE SOURCES TO (FILL-UP ONLY FUNDS
(NEED – (FILL-UP ONLY
FILL THE GAPS WHEN
HAVE) APPROPRIATE) WHEN
APPROPRIATE)
Search, Rescue 10 8 2 Augmentation
and Retrieval from RDRRMC
Team and nearby
Fire Engine 2 2 0 LGUs
Emergency 4 2 2
Medical Team
Service Vehicle 4 1 0
Rescue Boats 10 8 2 Procurement 2,000,000.00 LDRRMF
4
9
CP Form 9: Resource Gap
Summary
RESPONSE CLUSTER TOTAL RESOURCE GAPS TOTAL COST ESTIMATES
TOTAL
5
0
Instructions:
IMPORTANT
1. On the first column, list all the Response
Clusters. If there are no costs
2. Refer to the accomplished CP Form 8 for each required to obtain the
Response Cluster and determine the following: resources for the
Response Cluster, no
o Total Resource Gaps need to fill-up the “Total
Cost Estimates.”
o Total Cost Estimates
Example:
CP Form 9: Resource
Summary
RESPONSE CLUSTER TOTAL RESOURCE GAPS TOTAL COST ESTIMATES
51
CP Form 10: Emergency Operations
Center
LOCATION
CONTACT INFORMATION
Primary Alternate
Landline: Satellite Phone:
Social Media:
Others:
EOC MANAGEMENT TEAM
POSITION NAMES AND AGENCY/ CONTACT INFORMATION
(CUSTOMIZE AS APPROPRIATE) OFFICE/ ORGANIZATION (PRIMARY AND ALTERNATE)
(PRIMARY AND ALTERNATE)
EOC Manager
Operations Coordinator
Planning Coordinator
Logistics Coordinator
Finance/ Admin
Coordinator
Others
Others
Others
52
Instructions:
IMPORTANT
1. Under “Physical Location”, indicate the specific
location where the EOC will be established at the The EOC should be in a
time of the disaster or crisis. Note that. location that is FREE from
exposure to the hazard’s
2. Under “Primary Contact Information”, provide projected impacts. Do not
contact details of the EOC through primary means situate the EOC in a location
such as landline, mobile phones, and email that is hazard-prone.
address.
3. Under “Alternate Contact Information”, provide contact details of the EOC through
alternate means such as satellite phones and radios.
4. Under “EOC Management Team”, specify the persons in charge of managing the
EOC at the time of the disaster or crisis. Indicate their names,
agency/office/organization as well as individual contact information.
IMPORTANT
Remember that this is the WORST-CASE scenario. Consider assigning
primary and several alternate names of personnel for each EOC position.
In case the names of personnel cannot be identified yet, the planners
can resort to determine the names of agencies/offices/organizations/
that will provide augmentation.
53
Example:
54
CP Form 11: Incident Command
System
ICS FACILITIES
FACILITIES LOCATIONS
(CUSTOMIZE AS APPROPRIATE)
Incident Command Post
Staging Area
Base
Camp
Helispot
Helibase
Others
Others
Others
INCIDENT MANAGEMENT TEAM
POSITION NAMES AND AGENCY/ CONTACT INFORMATION
(CUSTOMIZE AS APPROPRIATE) OFFICE/ ORGANIZATION (PRIMARY AND ALTERNATE)
(PRIMARY AND ALTERNATE)
Incident Commander
Liaison Officer
Safety Officer
Finance/Admin Section
Chief
Others
Others
Others
55
Instructions:
IMPORTANT
Remember that this is the WORST-CASE scenario. Consider assigning primary and
several alternate names of personnel for each IMT position. In case the names of
personnel cannot be identified yet, the planners can resort to determine the
names of agencies/offices/organizations that will fill-up the position.
Note that ICS is a highly technical concept. Select the IMT members with proper
qualifications and training. Also, for WORST-CASE scenario, single command IMT
may not be suited. Consider the most appropriate Incident Management Option.
56
Example:
57
FREQUENTLY ASKED QUESTIONS
What are the main differences between this new CP process and the old one?
The new CP process is a calibration of the SFDRR. It is also aligned to the provisions of
RA 10121 as it links to the recent DRRM mechanisms such as ICS, cluster approach, PDRA
and RDANA. It is also useful for human-induced hazards by conforming with the
NCMCM.
Although the nomenclatures for the old CP process were revised, the approach
remains the same. Further, the CP forms are now enhanced and simplified.
We have already our emergency plans in place. Why do we still need to create CP?
What is the difference between a Public Service Continuity Plan (PSCP) and CP?
No, there should be one CP for every hazard. One hazard yields different impacts and
requires different set of resources, agencies involved, and response arrangements.
The term “sectors” was used in the previous CP manuals. With the approval of the
NDRP and the adherence of the NDRRMC to United Nations, the use of “clusters”
is now introduced.
Yes, especially if the scenario calls for it. For worst-case situations, mandated agencies
may probably be overwhelmed or even be part of the casualties. In this situation,
other agencies with the enough capabilities and technical expertise may take the lead.
58
Are we required to adopt the Response Clusters specified in the National
Disaster Response Plan (NDRP)?
Adopt the Response Clusters only if appropriate. The clusters specified in the NDRP are
just examples of the many possible clusters that we can organize depending on the
needs of the situation. Remember that CP is a need-driven activity. The existing
clusters may be modified depending on the situation or new clusters may arise as
necessary as agreed upon by the planners.
No, the NDRRMC is continuously developing the clusters based on the emerging needs.
No, but it will be an advantage if a CP participant fully understands ICS and EOC.
Other trained facilitators co-participants can provide actual mentoring to their
colleagues during the planning process.
The Cluster approach has already been used prior to the adoption of ICS. Now, ICS
may only lead to confusion when used with the Response Clusters. Why still use ICS?
The use of ICS is provided for in in RA 10121, Executive Order No. 82, s. 2012, and
many other issuances of the NDRRMC. Cluster approach will be used for resource
provision whereas ICS will be used for on-scene operations by the resources
provided by the clusters.
For detailed information on how to use both the Cluster approach and ICS in CP, the
NDRRMC Memorandum No. 43, 2016 provides the guidelines on the interoperability of
the IMTs and Response Clusters.
Yes, all DRRMCs from the national down to local levels are mandated to establish EOCs
as provided for in RA 10121. Specifically, in Section 12, c 23, LDRRMCs shall “establish
a Provincial/City/Municipal/Barangay Disaster Risk Reduction and
Management Operations Center”. This is further supported in various NDRRMC
issuances.
The intersection of vulnerability and exposure to hazard is reflected in the way we give
scores to probability and impact in CP Form 1.
59
<Name of Office/Agency> is not present in the workshop but their participation is
crucial. How can we proceed with the CP process?
Proceed with the planning even if key representatives are not present. In the ways
forward, organize the Working Group who will coordinate with the relevant agencies to
fill-in the remaining portions of the plan.
The SPHERE Project prescribes minimum standards provided for disaster response. Do
we have to use the SPHERE Project as our reference for the CP?
Yes, the SPHERE standards can be used as reference. It is a helpful guide to identify
and measure necessary resources that will be needed for the CP. However, the use of
SPHERE standards is not mandatory.
Our office/agency cannot comply with the SPHERE standards. What should we do?
The planners can localize and develop the standards. What is important is that the
standards have been agreed upon by the planning body.
Yes, the youth sector has a role not just in CP formulation but in all DRRM and CM
activities. RA 9163, RA 10121 and RA 7077 underscore the vital role of the youth in
nation building during peace and war particularly during national crisis,
emergency and disasters/calamities.
60
What are the other possible sources of funds that can be tapped to meet the
identified resource gaps?
Can the unexpended balance of the LDRRM Fund be allocated and used to fund
the programs, projects and activities needed for CP?
Yes. The references for this can be found at the COA Circular Number 2012-002 s.
September 12, 2012 and the DBM-NDRRMC-DILG JMC 2013-1 re Allocation, Utilization
of the LDRRMF. However, it is important to note that according to Section 3, Rule 18,
IRR of RA 10121: “…Any such amount still not fully utilized after five (5) years shall revert
back to the general fund and made available for the social services to be identified
by the local sanggunian.”
No. CP is intended for ensuring timely and effective response for the worst-case
disaster or crisis. DRRM Plan, on the other hand, entails identification of programs,
projects and activities for the four DRRM thematic areas.
Is there a liability on the part of the LGUs should they fail to formulate their CPs?
61
REFERENCES
Publications
Contingency Planning Guide (2012). International Federation of Red Cross and Red
Crescent Societies. Geneva, Switzerland
Contingency Planning for Emergencies: Manual for Local Government Units (2007).
National Disaster Coordinating Council and United Nations High Commission for Refugees
and National Disaster Coordinating Council
National Disaster Response Plan. (2017). National Disaster Risk Reduction and
Management Council
National Disaster Risk Reduction and Management Plan 2011 – 2028. (2012). National
Disaster Risk Reduction and Management Council
Executive Order No. 82, s. 2012: Operationalizing the Practical Guide for National
Crisis Managers and the NCMCM; Establishing National and Local Crisis Management
Core Manual; Establishing national and Local Crisis Management Organizations; and
Providing Funds Therefor
National Disaster Risk Reduction and Management Council and National Security Council
Joint Memorandum Circular No. 1, s. 2016: Guidelines on the Formulation of
Contingency Plans for Natural and Human-Induced Hazards and Adoption of the
Contingency Planning Guidebook
62
National Disaster Risk Reduction and Management Council Memorandum Circular No
04,
s. 2012: Implementing Guidelines on the Use of Incident Command System as an On-
Scene Disaster Response and Management Mechanism under the Philippine Disaster
Risk Reduction and Management System
Republic Act No. 10121: An Act Strengthening the Philippine Disaster Risk Reduction and
Management System, Providing for the National Disaster Risk Reduction and
Management Framework, Institutionalizing the National Disaster Risk Reduction and
Management Plan, Appropriating Funds and for Other Purposes
Sendai Framework for Disaster Risk Reduction 2015-2030. (2015). United Nations Office
for Disaster Risk Reduction.
Websites/Internet Articles
https://www.google.com.ph/
http://www.ifrc.org/
http://www.merriam-webster.com/ https://
www.gfdrr.org/sites/gfdrr.org/files/8.2.How_to_Define_Affected_Population.pdf
63