MODULE 4

CRISIS AND EMERGENCY

INTRODUCTION
This module presents the basic concept of crisis and emergency, the
crisis management, and policies in handling crisis/hostage situation. Also, it
presents the dynamics of managing a critical incident (such as hostage taking).
It shows a series of synchronized, coordinated and parallel response by civil
and police authorities from the time such crisis is first reported until its
successful conclusion by means of a well executed contingency plan.

SEGMENT 1 - Crisis and Emergency

Crisis came from the Greek word crisis, which means separate. As
defined by Funk and Wagnalls, crisis is turning points in the progress of an
affair or a series of events. Though crisis is often used interchangeably with
emergency, crisis develops from an emergency and vice versa, these terms
have certain degree of difference.

Emergency came from the Latin word “emergentia” meaning a dipping.

Funk and Wagnall defined emergency as a sudden condition or state of affair
calling for immediate action (Lud-ayen, Review Notes on Human Behavior,
2006).

Two Types of Crisis/Emergency

1. Man-Made Crises/Emergencies are:

A. Civil Disturbance (Riots) E. Revolt (Coup d’etat)
B. Revolution F. Border Incident
C. War G. Kidnapping
D. Hostage-Taking H. Terrorist Acts (bombing)

In case of any occurrence concerning crises and emergencies described

as man-made as described above, the National Peace and Order Council
(NPOC) established by Executive Order 320 on March 11, 1988 with its
present amendment through Executive Order No. 773 entitled, “Further
Reorganizing the Peace and Order Council, at appropriate level shall be the
organizational model that shall primarily take action on the situation”.

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2. Natural Crises/Emergencies are:
A. Volcanic Eruption D. Drought
B. Pestilence/Epidemic E. Earthquake
C. Inundation (Flood) F. Tidal Wave (Tsunami)

If crises and emergencies occur as a result of natural disasters or

calamities, the organization that shall primarily address the same shall be the
National Disaster Coordinating Council (NDCC) and its subordinate entities
established through Presidential Decree 1566.

However, the NDCC is presently called National Disaster Risk

Reduction and Management Council (NDRRMC) through Republic Act No.
10121 known as, “Philippine Disaster Risk Reduction and Management Act
of 2010”. It is an agency of the Philippine government under the Department
of National Defense, responsible for ensuring the protection and welfare of
the people during disasters or emergencies.

Note: Executive Order No.137 declares July as the National Disaster

Consciousness Month (NDCM).

The color of Danger: PAGASA’s New Rainfall and Flood Warning System:

The colors red, green, and yellow - the same iconic symbols used in
streets everywhere - are now given new meaning to alert the public of
possible floods.

The Philippine Atmospheric Geophysical and Astronomical Services

Administration (PAGASA) started using a color-coded rainfall and flood
warning system to help communities prepare for upcoming disasters. In a
nutshell, here is the tri-color warning system:

YELLOW means “CAUTION” - residents are advised to monitor the news for
further updates. “Yellow warning” represents 7.5-15 mm rain in an hour
which could also cause flooding. Response: Monitor the weather condition.

GREEN means “GO” - go ahead and prepare for possible evacuation. “Green
warning” stands for 15-30 mm rain in an hour that is also expected to
continue within the next two hours. At this point, low-lying areas are expected

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to suffer from floods because of relatively heavy downpour. The memorable
Typhoon Pedring (Nesat), which hit the country on September 27, 2011, fell
within the green warning range as it had a recorded rainfall of about 15-25
mm per hour. Response: Alert for possible evacuation.

RED means “STOP” - better stop what you are doing now if PAGASA says your
area is under a “red warning”. Evacuate. Think about the amount of rain at
Typhoon Ondoy’s (Ketsana) peak when it hit the country on September 26,
2009. The recorded rainfall at that time was approximately 56 mm in an hour.
According to PAGASA, if more than 30 mm rain is observed in an hour, and is
expected to continue in the next two hours, then low-lying areas are expected
to experience serious flooding. Residents in areas that have low elevation,
such as coastal towns and cities, the CAMANAVA (Caloocan, Malabon,
Navotas, Valenzuela) area, are advised to evacuate immediately. The rainfall
warning system is based on the intensity, characteristics and amount of
rainfall. Response: EVACUATION

PUBLIC STORM SIGNALS

Public Storm Warning Signals (PSWS) given during tropical cyclones

should not be mistaken for rainfall and flood warnings. According to the
PAGASA website, the purpose of the PSWS number is to warn the public of
specific weather conditions related to an oncoming tropical cyclone.

The Public Storm Warning Signals is based not just on the amount of
rainfall, but also on the strength and speed of the wind. Thus, the full impact
of each PSWS signal is only felt after a certain lead time has passed. The
various Public Storm Warning Signal levels are:

Public Storm Warning Signal # 1

This means that strong winds of up to 60 kph are expected within 36

hours. Because of the long lead time, its common for people to think that the
weather forecast is wrong. Damage is evident mostly on rice crops, light-
weighted structures - nipa huts and cogon huts - and banana plants. Coastal
communities are expected to be prepared for possible evacuation at any time.
A this PSWS level, preschool classes within affected areas are automatically
suspended.

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Public Storm Warning Signal # 2
 At this level, kids from preschool to high school “celebrate” because of
class suspension. Within 24 hours, winds of 60 to 100 kph are expected. Not
just crops but also galvanized roofs may be damaged from such winds. Travel
by water, especially by boat and other small seacraft, should be avoided.

Public Storm Warning Signal # 3

Most offices and all schools up to colleges and universities are closed
because it is dangerous for anyone to travel. Very strong winds of 100 to 185
kph are expected within 18 hours. Aside from the damages mentioned in the
previous PSWS numbers, electricity and water supply may also be affected. Air
and sea travel are both risky at this point. Classes in all levels are suspended.
Communities affected should expect major damage to crops and property.

Public Storm Warning Signal # 4

Winds with speed of over 185 kph are expected to hit the area within
12 hours. Residential, agricultural, and industrial properties may be severely
damaged. Electricity and communication may also be disrupted. Residents
along coastal areas and other danger zones are advised to evacuate as soon as
possible.

Also, according to the PAGASA website, because cyclones move at

different rates, the signal numbers may change depending on their movement
and behavior.

THE FOUR P’s OF CRISIS MANAGEMENT

Crisis incidents occur when they are least expected. What make these
incidents become crisis situation is when they gi out of control and cause
destruction to lives and property or endanger public safety. The 4Ps of Crisis
Management Model is envisioned to address crisis situations in two phases:
the Pro-active and the Reactive Phase composed of four stages: Prediction,
Prevention, Preparation, and Performance.

A. Pro-Active Phase

This phase is designed to predict or prevent the probability of

occurrence of crisis at the same time prepared to handle them when they
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occur. It compasses the first 3P’s of the Crisis Management Model.
 1st - Prediction - this stage involves foretelling of the likelihood of crisis
occurring either natural or man-made through the continuous assessment of
all possible threats and threat groups as well as the analysis of developing or
reported events and incidents. Crisis incidents can be predicted through
updated inputs from intelligence reports as well as the continuous monitoring
and analysis of the confluence (convergence) of related events. Prediction
includes:

A. Updating of inputs - threat

B. Intelligence about possible threat
C. Knowing possible targets and knowing the vulnerabilities

2nd - Prevention - with most man-made crises/emergencies, this stage

involves the institution of passive and active security measures, as well as the
remedy or solution of establishing factors and or security flaws leading to such
crises/ emergencies/. Prophylactic actions may well be applied to both natural
and man-made crises emergencies to prevent them from developing to
uncontrollable proportions. Prevention includes:

A. Operation Security
B. Personnel Security
C. Physical Security and the like

3rd - Preparation - preparation for crises/emergencies entails:

A. Planning
B. Organization
C. Training and
D. Stockpiling of equipment and supplies needed for such crises/emergencies

B. The Reactive Phase

Reactive phase is the performance of the crisis management plan

when a crisis situation occurs despite the proactive effort.

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th
4 - Performance - the objectives in this stage are to ensure a high
probability of success in neutralizing the perpetrators; to minimize, or cushion
the adverse effects of the crisis incidents and to ensure a smooth and speedy
 rehabilitation or return to normalcy. Performance has three sub-stages such
as: initial action, main action, and post action.

THREAT GROUPS (Man-Made)

A. Political Terrorists - these are ideologically -inspired individuals or groups.

They want prestige and power for a collective goal or higher cause. Many of
its members have intensive criminal backgrounds.

B. Criminals - these are people who commit terrorist acts for personal motives
rather than ideological gain. Some of their terroristic acts such as kidnapping
or extortion are planned. For instance, a number of bank robberies turn into
hostage-taking situations when policemen arrive in response to an alarm
while the robbery is still in progress.

C. Mentally deranged Individuals - these people commit terrorist acts during

a period of psychiatric disturbance. These type maybe the most difficult
terrorists to deal with due to unpredictability.

D. Religious Extremists - these people belongs to Southern Religious

Fundamentals. Intolerant of other faiths, they are apt to execute hostages
belonging to other religions.

E. Economically Motivated Groups - these people mainly belongs to labor

groups. Depending on their ideological orientations, motivation and long-
standing situation resorted to violence for many reasons favorable to them.

TERRORISTS OPERATIONS

Terrorist operations is covert and well- executed. They are usually

carried out by especially - trained, especially - equipped and especially
clandestine elements.

A. Weapons - Terrorist usually uses the following:

1. Basic arms (short arms and shoulder weapons etc…) and
2. Explosives (IED, Claymore, booby traps etc…)during operations, however,
they continue to seek access to advanced weaponry.
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B. Trainings - terrorists often undertakes training activities away from their
homeland, usually in countries known to be sympathetic to terrorist activities.
Generall, specially-trained terrorists are of above average intelligence. They
are usually trained on:
1. Subversion 3. Infiltration
2. Weaponry 4. Negotiation practices and others

C. Sequence of Terrorist actions are:

1. Pre-incident Phase - pre-operational activities includes reconnaissance
missions, lengthy periods of training, and rehearsals.
2. Post- Incident Phase - during the post-incident phase, the terrorist
members regroup and critique or evaluate their operation. They learn from
and share their successes and failures. This learning is often shared with other
terrorist groups.

TERRORIST TACTICS ARE:

A. Bombing
Delivery to target is done through:
1. Vehicle Bombs - these bombs refers to booby trapped vehicles with
attached devices and car bombs.
2. Laid Charges - these refers to bombs that are placed or assembled by hand.
3. Projected Bombs - these refers to bombs that are thrown by hand
launched from rifles, or projected by a mortar device.
4. Postal/Mail Bombs - these refers to bombs that are sent through letters,
parcels and other items sent by mail.

Activation means:
1. Command Activation - activation of explosive is by any of the
following means: radios, electric leads, pull wires, or mechanical
strikers.
2. Action by the Subject/Target - activation of bomb is through trip
wires, pressure devices, light sensitive devices, electric switches.
3. Time Delay - bomb is activated through clock, burning fuse, chemical
delay, or atmosphere pressure.

B. Arson
This is used to destroy or disrupt targets such as public utilities, political
headquarters, economic and industrial facilities.

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C. Hijacking
Hijacking and skyjacking are very popular means used by the terrorists.
Terrorists hijack vehicles with supply ammunition, fuel, cargoes. Hijacked
“legitimate” vehicles provide the terrorists an easy access to approach or gain
entry to a closed military installation. Skyjacking of commercial aircraft on the
other hand, guarantees publicity for the terrorists.
D. Assassination/Liquidation
This is the oldest but still the most widely used terrorist tactic. Targets
are often predictable, and invariably, the terrorists will claim responsibility for
the assassination.

E. Ambush
This is a well-planned, generally well-thought-out, properly and
precisely executed operation. The terrorist has time on his side and will spend
considerable time preparing for an operation. Terrorists have an advantage
because they can choose their time and place of operation.

F. Kidnapping
Kidnapping for ransom is the most common form of terrorists’ tactic.
The victim is normally confined in secret hideaway and the kidnapper make
demands.

G. Hostage-Taking
The hostage taker confronts the authorities and openly holds the
victims for ransom. His demands are often more than just material in nature.
A political concession is frequently demanded in exchange for the hostages’
lives.

H. Robbery/Extortion
Terrorist operations are expensive. To help finance their activities,
terrorists rob armored vehicles and persons carrying large sums of cash. Bank
robberies are also used as graduation exercises for terrorist training programs
and viewed as a tactical operation. They conduct reconnaissance, plan escape
routes and operate with a high degree of efficiency.

I. Progressive Taxation
The progressive taxation scheme of the CPP/NPA is a form of extortion
through coercion or use of force against the victim or his property.

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J. Raid/Attack
Target may not be necessarily be vital. Isolated or large one, what is
important is the raid/attack will attract public/media attention.

POSSIBLE TERRORIST TARGETS ARE:

A. Military/Police - to the terrorist, the military, para-military and police
elements are sources of arms, explosives and other weaponry.

B. Engineering and Emergency System - such as: hydro electric plants, gas
facility site, dams, etc…

C. Communication and Supplies - such as: equipment warehouses, lines and

facilities of communication, chemical storage sites and the like.

D. Transportation Facilities - such as: rail lines and cars, bus depots, airports
and aircraft, main land routes and bridge and the like.

E. VIPs - such as: members of the Diplomatic Corps, government officials,

corporate executives, police and the like.

ACTIVITY 4

Name_____________________________Yr and Sec_______Date__________

ENUMERATION:
Enumerate the Tri-Color Warning System and describe it in your own words.

QUIZ 4

ENUMERATION:
Enumerate the 10 Terrorists Tactics and describe each as to how you
understood it.

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