CHAPTER I

Background
I. The geographical location of the Philippines is situated along a highly seismic area
lying along the pacific ring of fire where two major tectonic plates (Philippine sea
and eurasian) meet and is highly-prone to earthquakes and volcanic eruptions. This
explains the occurrence of earthquakes and tsunamis and the existence of around
300 volcanoes of which 22 are active. In the same way, the Philippines is also located
in the pacific typhoon belt. The country experiences an average of 20 tropical
cyclones a year, 5 of which are said to be destructive.
II. The country’s geographical location has been the primary factor for its exposure to
hazards, particularly to weather-related disturbances. As such, we continue to face
challenges brought about by weather
P H D IS AS TER related disturbances such as typhoons
RIS K P ROF ILE and storm surges and earthquakes.
World data indicates about 75% of the
world’s major natural disasters
between 1970 and 1997 occurred
along the Asia -Pacific Rim.
III. According to world risk index 2011
released by the United Nations
University Institute for Human and
Environment Security based in Bonn,
Germany, the Philippines places third
out of 173 countries ranked according
to their exposure to hazards such as
earthquakes, floods and storms, drought and sea level rise.
IV. Cagayan Valley Region lies within the north eastern tip of the country, along the
typhoon path. It is endowed with rich natural resources such as watershed areas,
flora and fauna, river basins and tributaries serving as irrigation waters in
production area. The result of Hazard Vulnerability Assessment reveals that
Cagayan Valley is highly susceptible to hydro-meteorological hazards specifically
rain-induced flood and rain-induced landslide. The population, productive assets,
and public works are the elements at risks as a result of their exposure to hazard
events. Affected areas are mostly located along the river basin and in low-lying
communities. Potential effects of flooding to the population may include loss of
lives, varying physical injuries, psycho-social trauma of affected individuals, and
displacement. Potential damages to productive assets include loss of vegetation,
decrease in agricultural production and income, and decrease in tourist arrival.
Most of the critical infrastructure and facilities exposed to flooding and landslide are
the national, provincial and barangay roads, farm to market roads, residential areas,
telecommunications, bridges, irrigation systems, commercial establishments, and
other social infrastructures such as school buildings, health facilities, water systems,
etc. Damage to these multi-million vital infrastructures may seriously impair
delivery of basic services and may isolate communities from the rest of the Region.
Cagayan Valley is also prone to volcanic eruption and earthquake, while tsunami is
likely to happen along the coastal areas of Batanes, Isabela and Cagayan.
V. There is no laboratory for disaster except disaster itself; and what we want to
preclude is to have that “litmus test” in our midst. It is significant to note that thirty
five percent (35%) of the eighty (80) provinces in the country are highly exposed to
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 hazards and considered as priority areas for DRR. Relative to this, while we cannot
prevent the occurrence of hazards, we want to avoid or mitigate the effects of these
hazards into translating to enormous loss of lives.
VI. Region 2, ab initio, is not spared of these hazards and consequently the Local
Government Units of the Region are wanting adequate and prompt disaster
response from the NDRRMC in general and the CVRDRRMC in particular forgetting
perhaps that the LGUs themselves are the “heart and soul” for disaster response; for
having the abled bodies when properly equipped and trained even the most
obdurate hazard can be responded to. In the first place, it is the LGUs themselves
who are to take more concern on disasters thus the CVRDRRMC provides impetus for
guidance and direction with the OCDRO2 as coordinative office for administrative
requirements and integration of efforts for disaster responders. The cutting edge
lies really with the LGUs!
VII. The Disaster Risk Reduction and Management Act of 2010 strengthens the
Philippines’ implementation of actions and measures for direction and mitigation in
catastrophes and is a very important step towards achievement of an enhanced
response program for disaster risk reduction. Based on the provisions “the
participation of civil society organizations (CSOs), the private sector and volunteers in
the government’s disaster risk reduction programs towards complementation of
resources and effective delivery of services to the citizenry”, the government can direct
other groups in the country to join resources towards the domain of disaster risk
and reduction management programs. This opens up institutional capacity to
bolster good relationships among response operations key players that may result
to institutional interoperability.
VIII. As such, the Philippine Government, through the National Disaster Risk Reduction
Management Council (NDRRMC) has formulated several memorandums, guidelines,
and protocols that call for a more efficient and effective mitigation of, preparedness
for, response to, and recovery from any disaster.
IX. The NDRP is a strategic plan that provides general directions for all the agencies and
networks involved in disaster risk reduction and management (DRRM). At the
regional and provincial level it is necessary to have Operational Plan that will
provide functional concepts and guidelines across units or task organization in line
with the NDRP which provides the strategic plan.
X. Therefore, the Cagayan Valley Regional Disaster Response Plan (CVRDRP) provides
the overall tactical plan and standard operating procedures that will be
operationalized once the Response Cluster is being activated.
XI. The CVRDRRMC through the Office of Civil Defense Region 02 conceptualizes the
CVRDRP in line with the NDRP by first writing in detail the mechanics of
“BAYANIHAN CONCEPTS” of the response clusters and formulate Guidelines and
Procedures in Disaster Response Operations to institutionalize response operations.
XII. This CVRDRP shall follow and comply with every process laid down in the plan of
the NDRRMC but will introduce innovations to further improve the implementation
and to demarcate PREPAREDNESS – RESPONSE – EARLY REHABILITATION
procedures. This CVRDRP is intended for use of the Region only unless others adopt
this concept.

Objectives of the CVRDRP

XIII. The CVRDRP is the operational plan of the Cagayan Valley Region which aims to
meet the strategic direction of the NDRP. It also aims to provide guidelines to the
different response organization in the Region on what the courses of action to
undertake during disaster response operations. The mobilization of the different
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 response assets of the Region shall be stated in this RDRP in a multi-tiered
organization for all hazards. This CVRDRP further aims to lay parameters needed to
advocate changes relative to the complexities of a multi-dimensional process of
response that needs an integrated multi-dimensional solution.
XIV. The CVRDRP recognizes that the LGUs are the first responders in managing their
own incident as stated in Sec. 15 of Republic Act 10121. Thus, the CVRDRP clearly
states the augmentation protocols, procedure and linkages of the Region to the
affected LGU/s. The CVRDRP also describes the clear interoperability among the
CVRDRRM Council, Cagayan Valley Response Clusters, Cagayan Valley Incident
Management Team and the functions of the CVRDRRM Operations Center in order to
have delineation of work, efficient coordination and communication and to avoid
duplication or overlapping of function/s.

CVRDRP in Perspective

XV. The Cagayan Valley RDRP (CVRDRP) is an All-Hazard response plan that will serve
as a guide to the Cagayan Valley Response Clusters during disaster response
operations. The plan supports the NDRP which is the “multi-hazard” response plan
of the National Government of the Philippines. Emergency management as defined
in the PDRRM Act of 2010 (RA 10121), is the organization and management of
resources to address all aspects or phases of the emergency, mitigation of,
preparedness for, response to and recovery from a disaster or emergency. It
outlines the processes and mechanisms to facilitate a coordinated response by the
national and/or at the local level departments/agencies. Local government
institutions are responsible for the development and improvement of local response
plans relative to their areas of responsibility and underlying risks. The relationship
between the NDRP and CVRDRP and other local plans is shown in Figure 1.

RA 10121
Prevention and Mitigation Mitigation Preparedness
Preparedness
NDRRMP Response Recovery
Rehabilitation and Recovery NDRP

Cluster Operational Guidelines / SOP (Annex of NDRP)

NDRRMC Manual of Operations

Member DRRMP (Each Department)
Organizations NDRRMC
Mitigation Plan Preparedness Plan
Manual of Operations / SOPs
Response Plan R&R Plan (Central Office)

RDRRMCs (OpCens)
RDRRMCs
Regional DRRMPs Manual of Operations
Manual of Operations/SOPs
(Regional Offices)
(Regional Offices)

National Governments LEVEL

Local Governments LEVEL

P/C/M/B DRRMPs Manual of Operations (LGUs’ Offices)

Contingency Plans (LGUs’ Offices)

Figure 1. NDRP in Perspective

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 Necessity of the Cagayan Valley RDRP

XVI. As stipulated in RA 10121 Sec 10: The RDRRMCs shall coordinate, integrate,
supervise and evaluate the activities of the LDRRMCs. The RDRRMC shall be
responsible in ensuring disaster sensitive regional development plans, and in case of
emergencies, shall convene the different regional line agencies and concerned
institutions and authorities. During disaster response operations the Cagayan Valley
Regional Disaster Response Plan will serve as a guide for the CVRDRRMC in the
management of disaster and events.
XVII. The CVRDRP contains the following contents:

a. The Level of Actions at the different levels of command;

b. The Emergency Response Preparedness (ERP) shall replace the erstwhile known
as Pre-Disaster Risk Assessment – Actions, Plans, and Protocols (PDRA-APP);

c. The Response Cluster (RC) and Incident Management Team (IMT) Mechanisms;

d. Level of Response at the different levels of command;

e. Triggers for Response Activations;

f. The eleven (11) Response Clusters that were created to have a focused response
operations on the field as well as be able to directly and efficiently coordinate
with the existing Humanitarian Clusters of the International Humanitarian
Country Teams;

g. Roles and Responsibilities of each Lead and Member Cluster that is to take quick
and proper actions are clarified when the disaster occurs;

h. Predictable leadership and participation to ensure coordination - cluster

leadership, and participation roles of member organizations/agencies that are
clarified in each activity per disaster phase;

i. Operation Protocols of Response Clusters that are prepared to guide the

coordination that must be done coming from the National Government to the
affected LGUs needing the augmentation or assumption support;

j. The CVRDRP provides the framework for effective interphase of response efforts
through vertical and horizontal coordination; and

k. The CVRDRP does not replace event specific, departmental or agency plans but is
used as reference to achieve complementation.

Bases of Action Plan

Scenario Based

XVIII. The CVRDRP is formulated under the premise of a “worst-case scenario” for each
type of hazards that leads to disaster or calamity. The DSWD as Vice-Chairperson for
Response together with the eleven (11) Response Cluster agreed on this approach as
they believed that these hazards may lead to major disaster or emergency that can
cause mass casualties, massive destruction of public/private properties and
livelihoods, and disruption of normal life saving-support systems. Under a “worst-
case scenario”, the different government agencies, local government units and their

4
 respective offices in the different regional offices will be best prepared to respond
according to their respective capacity and capability.

Tiered Response

XIX. The type of response that the CVRDRRMC can provide has three approaches to
consider:
a. Augmentation to the operations of the affected LGUs;
b. Assumption of functions of the LGUs in providing response assistance to their
affected population by the Region; and
c. Requisition for support / assistance from National Level.
XX. All approaches also take into consideration the level of capacity and capability of the
respective affected LGU to determine the amount of assistance that will be provided.
XXI. As part of the first approach, the CVRDRRMC will deploy Rapid Damage Assessment
and Needs Analysis (RDANA) teams in the affected areas or based from the reports
of the affected LGUs. Based from these reports, the CVRDRRMC will plan its course
of action for augmentation. The second approach will commence based on the
identified trigger points stated in this plan. As a result of the massive impacts of
disaster the CVRDRRMC shall activate the response cluster and prepare for the
immediate deployment of Rapid Deployment Team/s (RDT) such as but not limited
to RDANA Teams plus aerial surveys in response to the disaster. In case the Cagayan
Valley Region becomes overwhelmed, the Chairperson may seek assistance from the
National or may resort to twinning. This twinning concept or method of cooperation
involves the Regions or the local governments working with designated
counterparts or "twins" who will act as second responders should their partner
Regions or LGUs fail to respond in disasters.
XXII. This approach aims to speed up response to disasters while waiting for help from
the national government.
XXIII. CVDRRMC will abide with the Section 15, Rule 11 of RA 10121 to take the lead in
preparing for, responding to, and recovering from the impacts of disasters based on
the following criteria:
a. Barangay Development Committee (BDC) if a barangay is affected;
b. Municipal/City DRRMC, if two (2) or more barangays are affected;
c. Provincial DRRMC, if two (2) or more municipalities/cities are affected; and
d. Regional DRRMC, if two (2) or more provinces are affected.
XXIV. The CV RDRRMC and intermediary LDRRMCs shall always act as support to LGUs
which has the primary responsibility as first disaster responders. Private sectors,
civil society organizations and other volunteer groups shall work in accordance with
the coordination mechanisms and policies set by the CVRDRRMC and concerned
LDRRMCs.
XXV. The systems and mechanisms that are in place before a disaster or emergency shall
be activated including the response cluster coordination system, emergency
operations center (EOC) and the incident command system (ICS). This is in line with
the provisions of RA 10121 acknowledging the jurisdictions of the different levels of
the local government system and the mandates provided in the Local Government
Code.
XXVI. The tiered response adheres to the capacity and capability of the LGUs in responding
to the needs of their constituents during times of disaster and thus promotes a
system of accountability through command and control.

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 Task Organization
XXVII. In this CVRDRP task organization is defined as temporarily and specifically assigning
different resources to accomplish a particular work/s or function/s. It is the process
of generating teams with respective response assets and unifying them that can be
mobilized during disaster response operations. In disaster response operations, it is
important to organize all available resources (personnel and equipment) as the most
brilliant plan ever can be devised by man yet, if you have not organized your
resources effectively you are setting the conditions for failure. Moreover, it is
imperative that the following aspects have been taken into consideration in the
creation a of task organization: Manpower by units, equipage, methods and
discipline and understanding of resources limitations. Figure 2 shows the existing
practice where individual task organization equates to specific hazard.
Furthermore, such figure is applied to smaller localities with peculiar hazards such
as Barangay and Municipalities. Figure 3 on the other hand illustrates the new
concept of task organization where it responds to a wider range of area like that of
the Province or Region.

Figure 2. Existing Practice

Figure 3. New Concept of Task Organization

Multi-layered Support System

XXVIII. Different response assets will be task-organized depending on capability, training
and qualifications and resources endurance and working capabilities that shall be
structured in tier in the Task organization as follows:

First Responders
- As per RA 10121 the response teams of the affected area will be the first
responders.

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 SRR Cluster:

Main Support Effort

- CVRDRRMC will deploy its first batch of response assets depending on the needs or
request by the IMT on the ground or LGUs affected.

Secondary Support Effort

- If additional resources are still needed.

Tertiary Direct Support

- May be deployed for replacement of the first batch of response assets or as
additional teams to accomplish the works.

General Support and General Support Reinforcement

- On standby and will be utilized as needed.

XXIX. Assisting/augmenting agencies or LGUs can commit 70% of its response assets to be
utilized to help in the affected areas while the remaining 30% will be used to
respond to their local emergencies.

XXX. In case the Region becomes overwhelmed, the CVRDRRMC may request additional
resources from NDRRMC and its twin Region/s.

XXXI. In addition, the CVRDRP is also built on the following understanding:

a. All government agencies and instrumentalities have their own respective
All-Hazard Disaster Preparedness Plans;
b. All Local Government Units (LGUs) have prepared their Hazard Specific
Contingency Plans and implemented their Local Disaster Risk Reduction
and Management Plans (LDRRMPs) within the DRRM Framework of
Prevention/Mitigation, Preparedness programs and activities that are
directly connected to response like prepositioning of key assets and
resources; and
c. The Cluster Approach System, Incident Command System and response
operations has been cascaded to all levels of government both national
and local.

Bridging Mechanisms

XXXII. Most disasters and emergencies are managed by the DRRMCs through the task
organization discussed earlier at different levels depending on the severity and
magnitude using the tenets of the Incident Command System (ICS) and the Cluster
Approach System (CAS). These systems provide the structure and operational
facility to coordinate and respond with coherence. It follows the concept of “Force
Provider-Response Cluster” and “Force Employer-Incident Management Team”.
Consistent with ICS and the CAS, the CVRDRP can be implemented through the
simultaneous activation of these systems making it flexible and responsive.
XXXIII. The CVRDRP establishes collaboration networks that are needed to dismantle
traditional institutional channels and facilitate the sharing of information among
DRRM Council members and concerned security sectors of the government. The
plan envisions having a close and effective communication, coordination,
cooperation, collaboration, and commitment (5Cs) among all concerned responding
7
government and non-government agencies. Also, the key to its success is the
information sharing and essential support not only of all key players and actors of
DRRM but also of the security sectors of the government. Moreover, important to
this operation is the ability of our responders and rescuers to effectively engage all
affected sectors during consequence management operations. At the end of these
operations, we envision a country of “safer, adaptive and disaster-resilient Filipino
communities toward sustainable development.”

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 CHAPTER II

Cagayan Valley Regional Disaster Response Plan

(CVRDRP)
What is CVRDRP?

I. As describe earlier, the Cagayan Valley Regional Disaster Response Plan

(CVRDRP) is an All-Hazard response plan which will serve as a guide for the
Cagayan Valley Response Clusters during disaster response operations. It
provides the overall tactical plan and standard operating procedures that will be
operationalized once the Response Cluster is being activated.
II. The National Government Agencies (NGAs), Response Clusters Leads and
Members, and Regional agencies are required to prepare Operational Plans
(OPLANs). Operational plans give fine details on how tasks should be carried out
on a day-to-day basis. Operational planning is the process of linking strategic
goals and objectives to tactical goals and objectives. It describes milestones,
conditions for success and explains how, or what portion of a strategic plan will
be put into operation during a given operational period. Operational plans
should be prepared by the people who will be involved in implementation. There
is often a need for significant cross-departmental dialogue as plans created by
one part of the organization inevitably have implications for other parts.
III. On the other hand, local government institutions (provincial, city, and municipal)
are responsible for the development and continuous improvement of
Contingency Plans (CONPLANs). In the absence of a Contingency Plan, an Action
Plan (AP) is used relative to the risk profiles of their respective areas of
responsibility and underlying risks. The CONPLANs and APs are hazard and/or
risk specific, area-focused, and time bound. The Contingency Plan which is only
applicable to C/MDRRMCs and Barangay level is hazard specific thus the local
levels are required to formulate different Contingency Plans based on the
identified hazards in their area. And unlike the C/MDRRMCs and Barangay level,
the R/PDRRMCs will make use of this CVRDRP which utilizes the Task
Organization being advocated. Figure 4 depicts the development phases of DRRM
Plans from national level down to the local level.

Figure 4. Development Phases of DRRM Plans

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 Where is CVRDRP applicable?
IV. Disasters come in various forms. This is why CVRDRP was developed for the
Cagayan Valley Regional Disaster Risk Reduction and Management Council
(CVRDRRMC) especially for its Response Cluste rs to facilitate coordinated,
effective and efficient disaster response operations and to address the gaps
needed in the ground and support the LGUS.
V. This CVRDRP is applicable to all types of hazards such as hydro-meteorological,
geological, technological, biological, environment and terrorism-related
incidents using the reinforced and structured task organization.

Concepts of Operations (Implan Ammuyong)

VI. The Cagayan Valley Regional Disaster Response Plan (CVRDRP) as mentioned is
an All-Hazard Operational Plan and will be activated on the occurrence of a
hazard. It may be a Slow-Onset Hazard or Rapid-Onset Hazard. The Chairperson
of the Cagayan Valley Regional Disaster Risk Reduction and Management Council
shall issue a Memorandum on the raising of Alert Status depending on the nature
of hazard/s that may affect the Region, the activation of the Cagayan Valley
RDRRMC, Regional IMT and RDANA Teams as per information that emerged
from the warning agencies, recommendation of the four (4) Vice Chair of the
CVRDRRMC and/or result of the Emergency Response Preparedness Core Group
Meeting.
VII. The Department of Social Welfare and Development, being the Vice Chairperson,
shall issue a Memorandum to CVRDRRM Response Clusters for its activation as
per criteria same as above. The Cagayan Valley RDRRM Operations Center shall
serve as the co-location area wherein the CVRDRRMC and CV Response Cluster
shall perform its functions. A Cluster Hub maybe established which shall be
decided during the Council Meeting.
VIII. During the said activation, all Cagayan Valley Rapid Deployment Teams are
placed on standby and ready for deployment. Meetings and Briefings of the
different RDTs shall be done at the CV RDRRM Operations Center upon the
notification coming from the CVRDRRM Operations Center.
IX. Response Clusters Working Teams such as ETC – RETT, Logistics Cluster – LET,
SRR Cluster – SAR Teams and other cluster working Teams will be deployed
based on the priorities stated in the Task Organization written in this Implan
Amuyong. Deployment of the Cluster Teams shall depend on the needs on the
ground gathered by the RDANA Teams or from the reports of the affected LGUs.

Activation of the CVRDRP?

Phases of the Disaster Response

X. The activities under the CVRDRP are divided into three phases, namely:
a. Pre-Disaster;
b. During Disaster; and
c. 3) Post Disaster.

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 XI. Aside from the three disaster phases, cross-cutting activities were identified.
These cross-cutting activities are done by member agencies in coordination with
other member agencies. The cross-cutting activities are:
a. Early warnings;
b. Rapid damage assessment and needs analysis;
c. Early recovery;
d. Post disaster needs assessment;
e. Mobilization of resources.
XII. The interfacing between Preparedness, Response and Rehabilitation and
Recovery shows the transition between the Pre-Disaster Phase to During
Disaster to Post-Disaster. The shifting of different activities and action priorities
are necessary in order to respond effectively to a hazard. However during the
said transition, there are cross cutting activities that are being conducted
wherein there are overlapping and/or transition points of activities among the
Preparedness, Response, Rehabilitation and Recovery Thematic areas, as shown
in Figure 5. In addition, each agency shall perform specific roles during the three
(3) phases of disaster which includes but not limited to the activities mentioned
below.

Figure 5.Interfacing of Preparedness, Response and Rehabilitation and recovery

Pre-Disaster Phase

National Information Management System

XIII. Data and Information are the life line of any operation. The National Information
Management System (NIMS) is an ecosystem that gathers and categorizes bits
and pieces of data coming from all possible sources during Response Operations
and transforms them into actionable information for the use of DRRM Managers,

11
 decision makers, response operatives, potential volunteers and donors, as well
as the affected population themselves.

XIV. NIMS, consists of three platforms, the INCIDENT MONITORING SYSTEM (IMS),
the SITREP System (SRS), and the collaboration website called ResponseOps.PH.

XV. The INCIDENT MONITORING SYSTEM (IMS) is an on-line ticketing system that
tags every single call (request for help, complaint, inquiry, etc.) received by the
Response Cluster Operations Center. These calls are documented and routed to
concerned Cluster Leads who then mobilizes specific agency or organization for
appropriate response. Such response action is feedback to the original caller to
ensure the incident is attended to by the bayanihan efforts of government,
uniformed service, private groups, NGOs, faith-based groups, and individual
volunteers who care about their well-being. The famous mantra in IMS is “leave
no caller behind.”
XVI. The incidents gathered in IMS together with the needs assessment, actions taken,
and gaps analyses by the responding organizations are logged into the Situation
Report System (SRS). It is an online system that records analyses and actions by
each responding agency and groups them into respective Response Cluster for a
systematic and effective response. The SitRep is collated by the Response
Cluster Secretariat according to specific periods and presented regularly to the
Response Cluster Monitoring Meetings and NDRRMC Operations Center.
XVII. All the data and information gathered in the course of operations, including the
official advisories of the Philippine Government through the concerned agencies
are published in the online collaboration platform that is named
ResponseOps.PH. It serves as an electronic bulletin board for the official
information of the Response Operations. It includes all Situation Reports,
Operational Maps, reported needs and actions taken by various agencies and
organizations. It also serves as a platform for advance coordination between
international organizations or foreign governments and the Philippine
International Humanitarian Assistance Center (PIHAC) to know the situation on
the ground and the assistance officially requested by the Philippine Government.
It can be accessed by logging to www.ResponseOps.Ph.
XVIII. While the RCIMS is an online platform that runs through constant internet and
power outside the disaster zone, data and information collected from the
affected area are transmitted to the Response Pillar Operations Center through
the hybrid of human and technological network of the Rapid Emergency
Telecoms Team (RETT) and digital volunteers. For purposes of network security
and data integrity, a username and password are needed to access these
platforms. These are usually given to agencies and organizations during training
long before disaster comes. Should this be not the case, the Response Cluster
Secretariat may be contacted at any given time during operations.
XIX. Once again, the mission of the RCIMS is to gather and systematize data into
actionable information to aid DRRM managers, decision makers, response
operatives, potential volunteers and donors, as well as the affected population
themselves.
XX. The CVRDRRMC through the Office of Civil Defense Region 02 shall issue alert
messages to the public in accordance with the warning messages from the
designated agencies like PAGASA, PHIVOLCS, MGB, and DOH to prevent and
mitigate the impact of the impending disaster(s).

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 XXI. The CVRDRRMC shall conduct Emergency Response Preparedness (ERP) and
shall activate the Response Clusters. Each Response Cluster Lead shall alert all
their member agencies and commence with their initial monitoring and
reporting of all standby resources prepositioned.
XXII. All on-going monitoring activities of all Cluster members are to be transmitted as
reports to the Response Cluster Lead. The report will assist the Cluster Lead
and focal person that is on-duty at the Operations Center to determine the
needed resources on t h e ground for immediate deployment. All Cluster
Leads to provide a consolidated report to the Vice-Chairperson for Response that
will be submitted to the CVRDRRM Operations Center.
XXIII. All LDRRMCs (Provinces, Cities, and Municipalities) shall activate their
Emergency Operation Centers in preparation for the impending hazards and
shall report the present situation to the CVRDRRMOC.

During Disaster Phase

XXIV. In the course of the transition from Preparedness to Response the CVRDRRMC
shall undertake the following actions but not limited to:
a. Continuous dissemination of warning advisories to be broadcasted to the
CVRDRRMC members.
b. Close coordination with the LDRRMCs particularly those that will be
threatened by the hazard.
c. CVRDRRMC member-agencies shall coordinate with their local counterparts
and shall take precautionary measures appropriate actions based from the
agreements during the series of ERP.
d. Prior to the impact of hazard CVRDRRMC response assets will be on standby
for possible deployment.
XXXIV. These actions are done prior to the impact of the hazard. Moreover, these are being
undertaken for immediate response actions.
XXXV. Three (3) approaches will be used for the “During Disaster Phase”:
a. Augmentation;
b. Assumption of response activities;
c. Request for support from the NDRRMC.
XXXVI. Augmentation of resources will commence at the “during disaster” phase.
However, best practices dictate that even before the disaster strikes, prepositioning
of resources are implemented by Clusters concerned. The results of the rapid
d a m a g e a s s e s s m e n t a n d needs analysis (RDANA) on the ground by the
affected LGU/s or Region shall be the basis for the request to the NDRRMC for
augmentation. Validation will be done by the respective Response Cluster
members with their respective focal persons prior to the deployment of resources.
XXXVII. Assumption of response activities will commence based on one trigger point:
There is no information coming from and going through the affected areas within 3-
6 hours after the onslaught of the disaster. Rapid Deployment Team/s (RDT) will be
deployed on the 6th hour of no communication from the affected areas. Upon
deployment, the RDT teams will conduct Rapid Damage Assessment and Needs

13
 Analysis (RDANA) and Rapid Aerial survey. The objective of the aerial survey is to
determine the extent of the damages in the area and in doing so, must determine
the required and feasible number of and strategic locations to install Response
Cluster hubs. Assessment should also determine initial number of resources needed
to sustain a 3-5day relief and rescue operations. These Response Cluster Hubs
must be strategically located near available transport links either through air, sea
and land.
XXXVIII. The RDT should also prepare and execute a Site plan for the installation of the
following:

a. Information and Communication Operations (ETC).

b. Relief Operations (FNFI, CCCM, IDP, HEALTH)
c. Logistical Support (LOGICTICS)

XXXIX. All RDTs will prepare and submit report to the CVRDRRMC Chairperson
through the CVRDRRMOC for immediate mobilization and deployment of
resources and manpower. The other RDT members will start the conduct of
RDANA. They will determine the length of time needed to finish the RDANA and
inform the CVRDRRMC through the CVRDRRMOC. The CVRDRRMC upon receipt
of the Report from the RDT must discuss and resolve the requirements from
ground with the different CVRDRRMC agencies using the Cluster Approach
System and Incident Command System. Upon consultation, the CVRDRRMC will
give directions and instructions to all Response Clusters and RIMTs based on
the report. The Response Clusters are to activate augmentation teams to replace
the RDT Teams on ground.
XL. Approval for the deployment of support resources for both approaches will be
done through the directive of the CVRDRRMC Chairperson.
XLI. Request for support or assistance from the National Level in case the Cagayan
Valley Region is in need of additional resources will be sought by the Chairperson.
XLII. Continuous provision of warnings and alerts from the warning agencies shall be
given to guide the operations and for the safety of the Response Clusters and
RIMTs.

Post Disaster Phase

XLIII. The shifting from “During Disaster Phase” to “Post Disaster Phase” commence
when signs of Early Recovery is being observed. An indication of Early Recovery
includes opening of business and trade; most people exhibits signs of coping; and
there is a transition of focus of humanitarian response from saving lives and
sustaining lives to partial rehabilitation and recovery activities. Activities during
that are being carried out during the transition from “During Disaster Phase” to
“Post Disaster Phase” include the following actions but are not limited to:
a. Convening a Planning Meeting for the Post Disaster Needs Assessment
Mission.
b. Demobilization of some resources used during humanitarian response.
c. Deactivation of the Incident Management Team.
d. Some of the Response Clusters are being deactivated
XLIV. During the Post Disaster Phase, the actual conduct of Post Disaster Needs
Assessment (PDNA) shall be undertaken. Rehabilitation and recovery efforts of
the National, Regional and Local Government are being embarked on as well as
14
 the Lifeline providers.

Cross-Cutting Activities

XLV. The Figure 6 illustrates the cross-cutting activities that are pursued by all
members of the Response Clusters in coordination with and amongst cluster
member agencies and organizations from the different disaster phases.

Damage
Mobilzation
Early Assesment Early
of
Warning (RDANA/P Recovery
Resources
DNA)

Figure 6. Cross-Cutting Activities Diagram

PREPAREDNESS

Early Warnings

XLVI. Early warnings and alerts do not only pertain to the initial warnings provided by
the warning agencies before the onslaught of the disaster. This also means
continuous provisions of warnings to guide the operations and the security or
safety of the Response Clusters.

RESPONSE

Rapid Damage Assessment and Needs Analysis (RDANA)

XLVII. The trigger points for the augmentation of resources will be based on the results
of the initial report of the rapid assessment submitted by the Regional RDANA
Teams or RDANA teams deployed by the affected LGU.
XLVIII. The report of the rapid assessment will be submitted to the next higher level of
government for any request of support or assistance. In the case of overwhelming
effects of a disaster based from the report of the RDANA, CVRDRRMC Chairperson
may ask the twin Region or the NDRRMC for assistance. The results of the rapid
assessment will also determine the need for Humanitarian
Assistance/Disaster Response (HA/DR). All humanitarian agencies that have
existing involvement in the affected LGUs during the disaster will be allowed to
participate in the rapid assessments and may offer their assistance to the
affected LGUs but will coordinate all assistance to the CV Response Cluster or
inform the benefitting LDRRMC for proper documentation and management of
extended assistance.
15
 Mobilization of Resources

XL I X . Mobilization of resources will happen in all phases of the disaster under the
directive and coordination of the different Response Cluster me m b e r s .
Prepositioning of resources will be done based on the result of Emergency
Response Preparedness (ERP). Augmentation of resources will be done based
from the report of the RDANA team or upon the request of Incident Management
Team on the ground.
L. All humanitarian assistance coming from non-government organizations (NGOs)
and local civil society organizations (CSOs) will coordinate their activities
(such as distribution of relief goods) and requirements ( such as request for
transportation or other logistical support) to the C V RDRRMC for proper action.
However as part of the policy of the CVRDRRMC, utilization of all available
government assets will be given priority to requests coming from the Response
Clusters.

REHABILITATION

Early Recovery

LI. According to the IRR of RA 10121, “Early Recovery” is a multidimensional

process of recovery that begins in a humanitarian setting. It is guided by
development principles that seek to build on humanitarian programs and
catalyze sustainable development opportunities. It aims to generate self-
sustaining, nationally-owned, resilient processes for post-crisis recovery. It
encompasses the restoration of basic services, livelihoods, shelter, governance,
security and rule of law, environment and social dimensions, including
reintegration of displaced populations.
LII. Taking into consideration the definition in the IRR mentioned above and the
definition of “Recovery” described in Section 3 of RA 10121, it is deemed that most
of the activities of Early Recovery are comprised in the Phase of Rehabilitation
and Recovery.
LIII. The Early Recovery shall be undertaken in each response cluster respectively
subject to the concurrence of the CVRDRRMC based on the results of Rapid
Damage Assessments and Needs Analysis. This does not include the activities that
will be identified for Rehabilitation and Reconstruction after any disaster. All
Response Clusters will pursue their respective early recovery activities that will be
required in the affected areas they are involved in and will only be terminated upon
determination of the affected LGUs and the Cluster Lead.

Post Disaster Needs Assessment (PDNA)

LIV. Post Disaster Needs Assessments shall be conducted when directed by the President
of the Philippines or the Chairperson of the NDRRMC. The CVRDRRMC may seek
assistance from the NDRRMC or Twin Region for augmentation of PDNA Teams if
the CVDRRMC Regional PDNA Teams are overwhelmed.

16
 Triggers for Activation
LV. Any one (1) of the following may trigger the use of CVRDRP through the activation of
the Response Cluster and Regional Incident Management Team (RIMT):

a. Result of ERP;
b. Red Alert Status;
c. Result of RDANA; and
d. As directed by the Chairperson, CVRDRRMC

LVI. The Regional Response Cluster is being activated by the Vice-Chairperson for
Response which is the DSWD while the Regional IMT is being activated as necessary
by the Chairperson, CVRDRRMC.

LVII. At the Provincial Level, the Provincial Response Cluster counterparts and Provincial
IMT are being activated by the Governor as the Chairperson, PDRRMC and
Responsible Official respectively.

LVIII. While at the City and Municipal Level, Response Cluster counterparts and the IMT
are being activated by the Mayor as the Chairperson, C/MDRRMC and Responsible
Official respectively.

Alert Levels
XLIV. Alert Levels are raised according to the level of readiness to take on an activity or
response mission. It is to be raised prudently to provide enough time to those
concerned to prepare without burdening undue stress. It may or may not trigger the
activation of the Regional Response Cluster and RIMT based from the CVRDRP. The
activation of the Regional Response Clusters and RIMT will be dependent on the
directive of the CVRDRRMC Chairperson which can be based from the result of ERP,
RDANA and recommendation of the Council members or directive from the
NDRRMC.

17
 Figure 7. Alert Levels with Indicators and Response Level utilize by the Response Cluster

XLV. The CVRDRRMOC has adopted the alert level of the NDRRMOC which provides clear
indicators. Alert Levels are defined in a three (3) step color code: WHITE, BLUE,
and RED as depicted in Figure 6.

a. WHITE: Refers to regular or normal operations, monitoring and reporting;

b. BLUE: Pertains to a condition of stand-by readiness in preparation for a full scale

response operation. This is commonly done in situations of slow-onset disasters.
In this condition, at least 50% of human and material resources are made
available for duty or deployment. The detection, tracking, monitoring, and result
of pre-disaster risk assessment triggers this status; and

c. RED: Signifies the highest level of readiness in anticipation of an imminent

emergency situation, or in response to a sudden onset of disaster. In this
condition, all human and material resources are made available for duty and
deployment. This may result to the activation of the Response Cluster and RIMT
including the escalation of the highest level of response. As such, inter-cluster
action planning is done during this status.

Who are the Key Players?

XLVI. The CVRDRRMC will be the main proponent, while the Response Pillar through
the Vice-Chairperson for Response is the lead agency in the implementation of
this plan. The CVRDRRMC, as the main body tasked to respond and manage all
disaster operations in the Region has the ultimate responsibility for any decision
and action affecting the difference between saving and losing more lives in the
aftermath of any disaster. Thus the responsibility of orchestrating a Regional
response either for augmentation or assumption of disaster response activities
requires an educated decisions and actions based on sound data and analyses.
18
 XLVII. To pursue this, all members of the CVRDRRMC will be oriented in view of this
plan and the systems installed in support of this plan.
XLVIII. The CVRDRRMC as a collegiate body and through the leadership of the
Chairperson and Vice-Chairpersons will take the helm of the operations and will
provide all decisions and instructions for a timely and appropriate assistance to
the affected population.
XLIX. The Emergency Response Preparedness (ERP) Core Group which is composed of
the CVRDRRMC Chairperson and the four (4) pillars of Prevention and
Mitigation, Preparedness, Response and Recovery & Rehabilitation provide risk
analysis and constant monitoring. These actions are supported by the Technical
Specialist Group from PAGASA, PHIVOLCS, MGB, BFP, PCG, DOH, PA and PNP that
have specific knowledge and expertise to manage hazards. All output data,
information, and knowledge are being used by the Response Cluster Lead
Agencies and Members including the RIMT to their minimum and advance
preparedness action planning leading to the contingency planning for response.
How CVRDRP works?
L. The CVRDRP consists of triggers for action, actions by, and outputs of key players
that progress across operational period between Emergency Preparedness and
Emergency Response and Recovery and Rehabilitation. It uses the disaster
preparedness and response management operational spectrum as its guiding
determinant in the attainment of its end-goal of an effective and efficient
response operation.
LI. The disaster preparedness and response management operational spectrum discusses
the whole dimension of the activities of the Response Cluster and Incident Management
Teams as the two (2) main operational components of the CVRDRRMC during
emergencies as shown in Figure 5. The entire breadth of response operations are
canopied by the different bridging mechanisms of Cluster Approach System, Incident
Command System, and the Co-Location Strategy.
LII. It is composed of three (3) key mission-essential activities; the Emergency Response
Preparedness (ERP), the Response Cluster and Incident Management Teams Activities,
and the Response Cluster and Incident Management Team Deactivation.

Emergency Response Preparedness (ERP)

LIII. The ERP centers on conditions in which the level of the possible disaster or emergency
warrants the unified efforts of the Response Cluster and Incident Management Teams
including other key players of disaster response operators. The primary aim of this
mechanism is to optimize the promptness of action and appropriateness of response
actions delivered immediately after the onset of disaster or emergency. ERP meeting
may be called by the Chairperson, CVRDRRMC and/or by the two (2) Vice-Chairpersons
for Preparedness and Response as necessary.
LIV. There are several elements of ERP, these are risk analysis and monitoring, minimum
preparedness action, advance preparedness action, and contingency planning for
response activities. Its process involves the principle of hazard specific, area focused,
and time bound.
LV. In an incident where potential disaster sets in slowly, action transitions between
Emergency Preparedness and Emergency Response Phase. Even as RA 10121
delineated surgically the four (4) Thematic Areas, in practice the transition between
Preparedness and Response overlaps in a specific area that is Emergency Response
Preparedness (ERP), also known as Pre-Disaster Risk Assessment (PDRA). Critical
19
 decision point of its commencement is when hazard is detected, tracked, monitored, and
early action is required.
LVI. Other actions also transitions between Response and Recovery and Rehabilitation
Phase in what is called Early Recovery (ER). These actions are manifested when there
is diminishing number of evacuees, and decreasing number of search and rescue
assistance. Normalcy is being felt when markets, banks, stores, gas stations are starting
to function.

Response Cluster (RC) and Incident Management Team (IMT)

Activities
LVII. The RC and IMT are the two (2) main operating arms of the Response Pillar. Its
activities start with its official activation through a Memorandum Order approved and
signed by the Vice-Chairperson for Response and the Chairperson, CVRDRRMC
respectively. Its activations are based from the result of ERP including the elevation of
alert status from BLUE ALERT to RED ALERT and/or as directed by the appropriate
authorities. Activities within this phase include response operations of RC as the “force
provider” and IMT as the “force employer”, and Rapid Damage Assessment and Needs
Analysis (RDANA).

20
 Response Cluster (RC) and Incident Management Team (IMT)
Demobilization and Deactivation
LVIII. The demobilization and deactivation of RC and IMT at the regional level starts when
early recovery phase is being observed. Return to normalcy is an indicator of early
recovery and a signal of hand-over from Emergency Response to Recovery and
Rehabilitation Phase. This is further gauged by decreasing requests for assistance by
the affected community, governance of Local Chief Executive has gone back to normal,
power and communication and other basic services are beginning to be restored, and
economic activities have resumed. After the hand-over to Recovery and Rehabilitation
Pillar, CVRDRP will then be deactivated and Response Operations (RC and IMT) shall be
demobilized.
LIX. In this phase, the Vice-Chairperson for Recovery and Rehabilitation Thematic Area
officially sets-off utilizing its own CLUSTER.

21
 CHAPTER III
THE INTEROPERABILITY OF THE DISASTER RESPONSE
SYTEM
THE CAGAYAN VALLEY RESPONSE CLUSTERS AND OPERATIONS CENTER

I. To Deliver Quick Response to meet basic subsistence needs and preservation of life
and properties for the affected families is the main goal of the Cagayan Valley
Disaster Response Thematic Area as stated in the CVRDRRM Plan. The Cagayan
Valley RDRRMC is tasked to respond and manage all disaster operations in the
Region.
II. A cluster is a group of agencies that gather to work together towards common
objectives within a particular sector of emergency response. The aim of the cluster is
to strengthen partnerships and responses to humanitarian emergencies by clarifying
the division of labor among aid organizations.
III. Currently, the Philippine Government recognizes the following eleven (11)
Emergency Response Clusters, and their respective lead agencies:

a. SRR : Search Rescue and Retrieval (AFP)

b. HEALTH: with Sub-Clusters on: Medical and Public Health Services, Water-
Sanitation-Hygiene (WASH), Mental Health and Psycho-Social Support Services
(MHPSS), and Nutrition (DOH)
c. IDP: Internally Displaced Population (Protection) (DSWD)
d. CCCM: Camp Coordination and Camp Management (DSWD)
e. FNFI: Food and Non-Food Items (DSWD)
f. LOG: with Sub-Clusters on: Warehousing, Transportation, Services, and Human
Resource (OCD)
g. LAO: Law and Order (PNP)
h. ETC: Emergency Telecommunications (OCD)
i. EDU: Education (DepEd)
j. PIHAC: Philippine International Humanitarian Assistance (DFA)
k. MDM: Management of the Dead and Missing (DILG)

IV. The Regional Response Clusters will provide response services on the following
triggers:
a. Trigger 1: Requests coming from the affected LGUs to CVRDRRMC
b. Trigger 2: No reports or information coming from the affected LGUs within 3-6
hours after landfall of the tropical cyclone.
c. Trigger 3: Result of the ERP and directives from the NDRRMC

V. Response Cluster Hub – As point of control and coordination of strategic allocation

of resources and management of policy issues, it is an alternative area of the
22
 response cluster. The Vice Chairperson for Disaster Response can recommend to the
Chairperson for the establishment of the hub.
VI. The CVRDRRMC Operations Center (CVRDRRMC OpCen) serves as the main
Command Center for the Cagayan Valley Response Clusters. The CVRDRRMC OpCen
is manned 24/7 by the Office of Civil Defense RO2 personnel during the different
Alert Status (White, Blue and Red). If alert status is raised to Blue, the Response
Clusters focal persons will render duty at the CVRDRRMC OpCen and responsible for
all coordination needed to be done to commence the operations of each Response
Cluster. Upon issuance of alert for any impeding hazard that poses threat, the
Cagayan Valley Response Clusters will be activated and will report directly to the
CVRDRRMC Chairperson for briefing and pre-disaster preparations.
VII. The OCD as manager of the Operations Center has the following responsibilities;
a. Coordination of all requests coming from the Response Clusters:
b. Gathering and consolidation of reports from member-agencies and LDRRMCs;
c. Dissemination of Press Releases and official information to the public authorized
by the Chairperson of the CVRDRRMC;
d. Provide administrative and secretariat assistance and support to the
CVRDRRMC;
e. Monitoring the Regional Situation;
f. Serves as link to the CVRDRRMC, Response Clusters and activated ICS on scene.

VIII. CAGAYAN VALLEY RDRRMC ALERT STATUS

ALERT STATUS ACTIVATION FUNCTION

The Cagayan Valley RDRRMC will
Normal continue monitoring the AOR, Conduct
WHITE ALERT
Situation IEC and Community preparedness
Activities
An initial limited or a post Red Alert
scaled down operational condition of
the CVRDRRMC Operation Center
wherein OCD personnel rendered
shifting of duties, conduct ERP and
council meetings, continuous
Partial dissemination of warning advisories
BLUE ALERT
Activation and information to CVRDRRMC
member agencies, LDRRMCs, Media
and to the general public. Cagayan
Valley Response Clusters and RDTs are
on standby and response assets are
prepositioned for easy deployment.

RED ALERT Full Activation When an event/disaster occurs, the

Office of Civil Defense Region O2
together with CVRDRRMC member-
agencies will be responsible in
disseminating warning information
from warning agencies (i.e PAGASA)
and NDRRMC to its lower units,
LDRRMCs, Media and other

23
 stakeholders. OCD personnel rendered
shifting of duties. Conduct of series of
response cluster meetings
Members of the Response Clusters
render shifting duties at the
CVDRRMOC. Implementation of Co-
location strategies. Deployment of
RDTs and activation of IMTs

Chairperson of the CVRDRRMC is

responsible in changing the Alert
Status of the Cagayan Valley RDRRMC –
Operation Center.

IX. The following diagram shows the Interoperability of Cagayan Valley Response
Cluster, CVRDRRM Operations Center and the CV Regional Incident Management
Team.

Figure 8. Interoperability of Cagayan Valley Response Cluster, CVRDRRM Operations Center

and the CV Regional Incident Management Team

Interoperability with the National and Local Government Units

Focus of the CVRDRP

X. The CVRDRP focuses on the action of the CVRDRRMC towards the mounting
requests from affected LGUs that have used up their prepositioned resources in their
response operations. It acknowledges the jurisdictional mandate of the local
government units both at the provincial and municipal levels in the protection and

24
 provision of public services as dictated by the Local Government Code (LGC, RA
7160).
XI. To comply with the mandates of the LGU, the CVRDRP approaches response by
providing augmentation to the existing provisions of the LGUs or to assume the
response activities of the affected LGUs. The member agencies of the CVRDRRMC
have installed a system of reporting and protocols that will ensure that all affected
LGUs will be assisted by the next higher level of government for augmentation of
resources or in cases where the LGUs are so affected by disaster that there is a need
for the CVRDRRMC to assume the conduct of response activities for the affected
LGUs.
XII. The CVRDRP is built on the premise that all LGUs have done their respective
Preparedness and Mitigation Plans as well as their respective contingency plans. It
also acknowledges that all LGUs have their respective Incident Command System
that will be immediately activated during disaster. These premises are necessary to
develop the tactical actions of the CVDRRM council for response as the CVRDRP
focus on the assistance to be provided based on the response capacity and capability
of the affected LGUs.
XIII. The CVRDRP also recognized the role of the NDRRMC in augmentation to the
existing provisions of the LGUs or to assume the response activities of the affected
LGUs. Furthermore, in overwhelming regional situation, the NDRRMC will assist the
CVRDRRMC in doing its function. Also, CVRDRRMC may ask the assistance from its
twin Region.

Incident Command System (ICS)

XIV. The CVRDRP acknowledges the Incident Command System (ICS) being established
and activated at the local level during response. It is a standard, on- scene, all-
hazard incident management concept that can be used by all DRRMC member
agencies and response groups. The purpose of the ICS is to help to ensure:

a. Safety of responders and others

b. Achievement of tactical objectives
c. Efficient use of resources

XV. As a management system, it meets the needs of incidents of any kind or size. It
allows personnel from a variety of agencies to meld rapidly into a common
management structure using plain language. It maximizes effective logistical and
administrative support to operational staff by avoiding duplication of efforts and
providing accountability and a planning process. The ICS focuses on LGU’s
operations and management of on scene incident.

Legal Basis of Incident Command System

Republic Act 10121
a. Section 9 (g): The Office of Civil Defense (OCD) shall formulate standard
operating procedures for coordination…
b. Rule 7 (h), Implementing Rules and Regulations: The OCD shall establish ICS as
part of the Philippines’ on- scene disaster response system.

NDRRMC Memorandum Circular No. 4, s2012

25
 Signed on March 28, 2012, this provides the implementing guidelines on the use of
the ICS under the Philippine DRRM System.

Executive Order No. 82, s2012

Signed on September 4, 2012, this mandates the activation of the ICS for human-
induced crises.

NDRRMC Memorandum Circular No. 43, s2016

Signed on August 18, 2016, this provides the guidelines on the interoperability of
the Incident Management Teams and Response Clusters.

NDRRMC Memorandum Order No. 44, s2016

Also signed on August 18, 2016, this provides the guidelines on the mobilization Of
Incident Management Teams

NDRRMC-NSC Joint Memorandum Circular No. 1, s2016

Approved on 30 August 2016, this JMC requires the use of ICS as an integral
component of contingency plan for both natural and human-induced hazards.

XVI. The CVRDRRMC also organized a Regional Incident Management Team (RIMT) that will
manage disaster operations on the ground. The RIMT can be deployed to affected
areas through the request of the Provincial DRRMC or as directed by the
Chairperson of the CVDRRMC through coordination with the Local Chief Executives
of the affected areas. There are also other triggers in the deployment or activation of
the RIMT such as recommendation from the RDANA Team/s for the establishment of
ICS or no reports from the affected areas within 3-6 hours after impact.
XVII. In a wider scope of incident, CVDRRMC will activate its IMT and establish an Area
Command. An Area Command will oversee the management of the very large or
evolving incident that has multiple management teams on the ground.
XVIII. The CVRDRP does not change the ICS but harmonized with the system. The Response
Cluster is an organizational structure that will facilitate the provision of resources
and services by a group of agencies that has both technical capability and capacity
for specific needs of the affected population. The approach for response in providing
the physical, social, psychological and health requirements of the affected
population is holistic but using specific cluster in the delivery of goods and services.

Incident Management Team (IMT)

XIX. The organization of the IMT is composed of the Incident Commander and appropriate
Command and General Staff assigned to an incident or planned event as shown in
Figure 9 below.

26
 Figure 9. Basic Organization of IMT

XX. Incident Commander (IC): The individual responsible for all incident activities,
including the development of strategies and tactics and the ordering and the release
of resources. The IC has overall authority and responsibility for conducting incident
operations and is responsible for the management of all incident operations at the
incident site. The IC receives directive from the Responsible Official who is the
overall in charge of an agency, organization or institution who has the full authority
for making decisions and providing directions to manage an incident or planned
event within his/her jurisdiction.
XXI. Command Staff: the Command Staff typically includes a Public Information Officer (PIO),
a Safety Officer, and a Liaison Officer, who report directly to the IC and may have
assistants as necessary.
XXII. General Staff: a group of incident management personnel organized according to
function and reporting to the Incident Commander. The General Staff typically
consists of the Operations, Planning, Logistics, and Finance/Administration Section
Chiefs.
XXIII. Emergency Operations Center (EOC): The facility that serves as repository of
information and main hub for coordination of resources to support the management
of an incident or planned event.

Inter-operability of Response Cluster and IMT

XVI. The Cagayan Valley Response Clusters acts as the resource provider, and the IMT acts as
the resource employer and is linked by the CVRDRRM Operations Center. The
Chairperson and the council members shall undertake coordination by:
a. Making policy decisions;
b. Establishing priorities;
c. Resolving critical resource issues;
d. Mobilizing and tracking resources; and
e. Collecting, analyzing, and disseminating situation report/information
XVII. As shown in Figure 10, Response Cluster provides resources to the Incident
Management Team following the check-in procedure. These resources shall be
placed under the Operational Control of the IMT, but remains to be under the
Administrative Control of the RC Teams.

27
 Figure 10. Interoperability of Response Cluster and IMT diagram.

XVIII. At the tactical level on the ground, RC Teams with their respective resources shall
operate as units under the Operations and Plans Sections. The RC Teams shall abide
by the principles of the ICS upon check-in, while performing their specific mandates,
SOPs and technical expertise. The IMT will manage them tactically for proper
placement and efficiency.
XIX. The Response Clusters and the Incident Management Team however, shall never be co-
located because of the difference in their nature of work and purpose.

Executive Order No.82 of 2012 for Establishing National and Local

Crisis Management Organizations

XX. The CVRDRP shall be harmonized and consistent with “The Practical Guide for National
Crisis Managers” and “The National Crisis Management Core Manual (Core Manual)”
authorized by E.O. 82 issued on September 04, 2012. These two (2) operational
manuals discuss agency/departmental principles and provisions, and provide
functional concepts and guidelines across offices/units in the agency/department
for responding to and managing human-induced crises. In E.O. 82, the Core Manual
has been defined as the overarching framework for national crisis management.

Co-Location Strategy
XXI. The purpose of co-locating is to ensure faster communication, coordination,
cooperation, collaboration, and to guarantee commitment (5cs). It will also envision
attaining effective operational planning, efficient task division, and comprehensive
information sharing.

The specific objectives of the co-location strategy are as follows:

a. To recognize priorities based on humanitarian needs through transparent sharing

of information;
b. To buildup effective and efficient coordination;
c. To develop measureable and common understanding for operational planning;
d. To ensure rapid coordination, cooperation, and decision-making based on needs;
e. To maximize communication and the sharing of information to all stakeholders,
actors, and key players from the national and local government levels, the foreign
and local NGOs, and Foreign and Local Military Units; and
28
 f. To optimize the utilization of unique resources (i.e. military aircraft) in order to
develop sustainment concept in disaster management operations.

XXII. The co-location strategy improve the establishment of a common situational picture,
facilitates unity of efforts and allows the pooling of resources for the affected areas
during disaster management operations. The use of various bridging mechanisms
such as the Cluster Approach System, Incident Command System (ICS), and other
methods provide overarching actions that cuts across the different levels of
command.
XXIII. The CVDRRMC Operations Center will house the response clusters and the Council in
times of response operations. Both the Council and the Clusters will be activated
through the following triggers:

a. Result of the Emergency Response Preparedness Core Group planning meetings.

b. Chairperson of the CVDRRMC issues Memorandum relative to the activation of
the Clusters and the Council.
c. CVDRRMOC raises its Alert Status to RED.
d. Severity of effects of the disaster based from the reports submitted by the Local
DRRM offices.
e. Based from the recommendation of the Vice-Chair for Disaster Response,
CVDRRMC will establish Cluster Hub/s in strategic location/s for effective and
efficient coordination strategy of the Council and the Clusters.

29
 CHAPTER IV
ACTIVITIES, COMMON TOOLS AND SERVICES
Rapid Damage Assessment and Needs Analysis (RDANA)

I. RDANA is a disaster response tool that is used immediately during the early and
critical state of a disaster. As soon as the conditions allow disaster survey teams are
deployed in the affected area/s. It aims to determine the immediate relief and
response requirements and is dependent upon the type of disaster. It is broad in
scope and focuses on overall patterns and trends. It identifies the magnitude of a
disaster (without necessarily delivering exact figures) by focusing on the general
impact on the society and the people's capacity to cope. The tools to be used for its
operations are Form No. 1 that requires visual and initial reports of damage and
needs and the Form No. 2 that requires a more detailed damage assessment and
needs analysis that serves as the initial baseline data for Post Disaster Needs
Assessment (PDNA). RDANA is composed of the following:

a. Damage Assessment - this depicts the overall picture of the incident situation by
providing a "snapshot" of the disaster's magnitude and impact on population and
infrastructure. It answers the question "what has happened?"

b. Needs Analysis - this defines the level and type of immediate assistance required
for the affected population. It answers the question "what needs to be done?"

II. RDANA comprises situation, resource, and needs analysis in the early and critical
stage of a disaster and is intended to determine the type of immediate response and
relief needed and appropriate follow-on actions. The assessment provides
information about the needs, possible intervention strategies and resource
requirements, and aims to identify the following:

a. General overview of the damage in terms of:

- nature of a disaster;
- extent of damage and the secondary threats;
- impact to availability of resources and local response capacity; and
- the level of continuing or emerging threats

b. Assessment of the situation and recommendation on the following:

- most urgent relief needs;
- potential methods for delivery or priorities for action;
- utilization of resources for immediate response;
- options for relief assistance;
- need for detailed assessment of specific geographical areas or sectors; and
- need for international assistance

III. Legal Bases and References

a. Section 9, Powers and Functions of OCD under RA 10121: Formulate
standard operating procedures for the deployment of rapid assessment teams,

30
 information sharing among different government agencies, and coordination
before and after disasters at all levels;
b. Section 3, Rule 4 IRR of RA 10121: The RDRRMC Chairperson may tap the
facilities and resources of other government agencies and private sectors, for the
protection of life and properties in pursuit of disaster risk reduction and
management; and
c. NDRRMC Memorandum Circular No. 25, s. 2014, Subject: Guidelines in the
Conduct of Rapid Damage Assessment and Needs Analysis (RDANA)

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