10/03/2021 1

CRISIS &
EMERGENCY
MANAGEMENT
10/03/2021 2

CRI
CR I SI S
• Derived from the Greek “krisis” which means separate.
• It is the turning point decision in a process of an affair or
a scenes of events.
• Unstable and dangerous condition characterized by an
impending abrupt change involving economic, military,
political, police, societal or personal affairs that is
approaching emergency level.
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CRISIS MANAGEMENT
• It is the expert handling of crisis or emergency to
reduce or eliminate danger or damage or to like,
especially on the part of the Government.
• Crisis management is the proper utilization of all
available resources and the formulation of policies
and procedures to effectively deal with progressive
sequence of events (crisis) and sudden or
unforeseen state (emergency).
10/03/2021 4

EMERGENCY
is derived from the Latin word “emergencia”
which means dipping or plunging.
a sudden condition or state of affairs for an
immediate action.
refers also to the sudden event that must be
dealt immediately.
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DISASTER
• Refers to an event that causes serious loss, destruction
hardship, unhappiness or death. It is something that falls
completely, especially in a way that it is distressing,
embarrassing, or even laughable.
• In a broader point of view, DISASTER is a sudden,
unforeseen, extraordinary event that is caused by man or
nature resulting to the wide spread of death or injury as well
as serious loss or damage to property.
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DISASTER MANAGEMENT
• Refers to the systematic handling/dealing with a disaster from the
initial stage until its termination stage using various
tools/methods to minimize loss of life, damage to property, and
enhance rehabilitation. It maybe defined also as the range of
activities designed to maintain control over disaster or emergency
situations and to provide frame work (plan) for helping victims to
recover from the impact or disaster, and simultaneously securing
potential victims to avoid impact of the disaster. Take note that
disaster management deals with situations that happen prior to,
during and after the disaster.
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POLICE EMERGENCY

• is a tactical situation related to police works

which requires special procedures to be used
by people with special skills to neutralize
whatever threat to public safety thus save life
and property.
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STATE OF CALAMITY
• A condition involving mass casualty
and/or major damages to property,
disruption of means of livelihoods, roads
& normal way of life of people in the
affected areas as a result of the
occurrence of natural or human-induced
hazard.
10/03/2021 9

TYPES OF CRISIS/EMERGENCY

NATURAL CRISES/EMERGENCIES:
Typically natural disasters considered as acts of
God, such as environmental phenomenon.
Earthquake, Tidal waves (tsunami/storm surges),
Volcanic eruption, Pestilence/Epidemic
(diseases), Inundation (flood)
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MAN-MADE CRISES/EMERGENCIES:
Civil disturbance
Revolution/Coup d'état/War
Hostage taking
Border incident
Kidnapping
Terrorist acts (bombing)
Fire can be man-made or natural
crisis/emergency.
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Executive Order 320 (March 20, 1988) – National Peace and Order
Council amended by E.O. No. 773 Further Reorganizing the Peace and
Order Council.
PD 1566 – National Disaster Coordinating Council (NDCC)
RA 10121 – Philippine Disaster Risk Reduction and Management Act of
2010 NDCC to National Disaster Risk Reduction and Management Council
(NDRRMC). An Act Strengthening the Philippine Risk Reduction and
Management System, providing for the National Risk Reduction and
Management Framework and Institutionalizing the National Risk Reduction
and Management Plan, Appropriating funds therefore & other Purposes.
Approved on: May 27, 2010
E.O. No. 137 declares July as the National Disaster Consciousness
Month (NDCM)
10/03/2021 12

SALIENT PROVISIONS OF RA 10121

National Disaster Coordinating Council to National Disaster Risk
Reduction Management Council of National Council

Organization of NDRRMC/NC
Sec. of the DND, Chairperson
Sec. of the DILG, Vice Chairperson for Disaster Preparedness
Sec. of the DSWD, VC for Disaster Response
Sec. of the DOST, VC for Disaster Prevention and Mitigation
Director-General of NEDA, VC for Disaster Rehabilitation & Recovery
10/03/2021 13

ORGANIZATIONAL LEVEL

National – NDRRMC
Regional – RDRRMC headed by OCD Regional Director
Provincial – PDRRMC
City/Municipal – C/MDRRMC
Barangay – BDRRMC
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Local Disaster Risk Reduction Management Office

(LDRRMO) shall be established in every provinces,
cities/municipalities and BDRRMC in every barangays.

LDDRM Fund shall 5% of the estimated revenue of LGU

70% for Disaster & Mitigation
30% Quick Response Fund
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Coordinating During Emergencies

Brgy. Development Council if barangay is affected

C/MDRRMC – if 2 or more brgys. are affected
PDRRMC – if 2 or more cities/municipalities are affected
RDRRMC – if 2 or more provinces are affected
NDRRMC – if 2 or more regions are affected
10/03/2021 16

PUBLIC CRISIS
• involves more than 1 person or one family. It is a form of
crisis that is tantamount to public emergency or police
emergency.
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INDIVIDUAL CRISIS
It refers to the feeling that arises when a person faces unpleasant
situation such as frustrations and conflicts.
TYPES
• P h y s i c a l C r i s i s those that are related to health
problems or bodily sickness/sufferings.

• E c o n o m i c s C r i s i s the deprivation of the basic

necessities of life like food and material things.
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Emotio nal Cri sis when an individual is affected by negative feelings

like emotional disturbances, fear, etc.

S o c i a l C r i s i s the experiencing lack of interest, confidence and

social skills to relate meaningful, harmonious relationship with others.

M o r a l C r i s i s the person has an irrational or distorted concepts of

what is right or wrong, lack of moral values and integrity of the person.

P s y c h o s e x u a l C r i s i s failure of the person to assume ones sex

role and identity as a man or woman. The person has an inappropriate sex
objective, inadequate and distorted expression of affection.
10/03/2021 19

DIAGRAM OF DIFFERENCE
CRISIS EMERGENCY

PROGRESSIVE UNFORSEEN/SUDDEN
STATE SEQUENCE EVENTS
OF EVENTS

TURNING POINT Immediate Decision

DECISION OF CRISIS Remedy
MGT. PLANNERS

Change Continuity Recovery Restoration

Survival Survival
10/03/2021 20

OBJECTIVES OF CRISIS
MANAGEMENT

1. Resolve w/out further incident.

2. Safety of all participants.
3. Apprehension of all perpetrators.
4. Accomplish the task w/in the framework of
current community standards.
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PURPOSES OF CRISIS MANAGEMENT

• It sets concepts, policies and general
procedures of handling crisis situation.

• It guides and assist law enforcers in the

formulation of crisis management
contingency plans.
10/03/2021 22

PHASES OF CRISIS MANAGEMENT (PR)

& 4Ps
A. PRO-ACTIVE PHASE is the stage of advance
planning, organization and coordination and control
in response to an anticipated future crisis
occurrence. This phase is designed to predict or
prevent probability or occurrence of the crisis
while at the same time prepares to handle them
when they occur.
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A. PRO-ACTIVE PHASE
1. Prediction - this stage involves foretelling of the likelihood or
crisis occurring either natural or man-made through the continuous
assessment of all possible threats & threat groups as well as the
analysis of developing reported events and incidents.

Prediction includes:
a. Updating of inputs-threat
b. Intelligence about possible threat
c. Knowing possible targets & knowing the vulnerabilities
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2. Prevention - this stage involves the institution of

passive and active security measures, as well as the
remedy or solution of establishing factors & or security
flaws leading to such crisis/emergencies.

Prevention includes:
a. Operation Security
b. Personnel Security
c. Physical Security & the like
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3. Preparation -preparation for crisis/emergencies

entails:
a. Planning
b. Organization
c. Training
d. Stockpiling of equipment & supplies needed for
such crisis/emergencies
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B. THE REACTIVE PHASE

• When a crisis occur despite the pro-
active effort, the organization
concerned must be prepare to perform
the crisis management in accordance
with their plan.
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4. Performance
• this stage is covered by the reactive phase of crisis management.
• It covers the actual execution or implementation of any contingency plans
when a crisis or emergency occurs brought about by a disaster.
• It is the action stage, the implementation of the CM contingency plan.
Objectives of this stage are:
a. to ensure a high probability of success in neutralizing the perpetrators;
b. to minimize, or cushion the adverse effects of the crisis incidents &
c. to ensure a smooth and speedy rehabilitation or return to normalcy.
 10/03/2021 28

THREAT GROUPS (MAN-MADE)

1. Political Terrorist –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.

2. Criminals – are people who commit terrorist acts for

personal motives rather than ideological gain. Some of
their terrorist acts such as kidnapping or extortion are
planned.
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3. Mentally Deranged Individuals –people commit terrorist’s acts

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

4. Religious Extremists – these people belongs to Southern

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

5. 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.
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Terrorist Operations – covert and well-executed. They are usually

carried out by especially –trained, especially equipped and clandestine
elements.
A. Weapons – terrorist usually uses basic arms and shoulder weapons
and explosives during their operations.

B. Trainings – they usually trained on subversion, weaponry,

infiltration and negotiation practices and others.

C. Sequence of terrorist actions: 1. Pre-incident phase (pre-

operational activities) and 2. Post-incident phase (member regroup
and evaluate their operation)
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TERRORIST TACTICS
A. BOMBING – done through:
1. Vehicle bomb
2. Laid charges – bomb that are placed or assembled by
hand
3. Projected bombs- thrown by hand, launched from
rifles or by mortar device
4. Postal/mail bombs – bombs are sent through letters,
parcels & other items sent by email
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ACTIVATION MEANS:
1. Command Activation – activate explosive by means of
radios, electric leads, pull wires or mechanical strikers.

2. Action by the Suspect/Target – thru trip wires, pressure

devices, light sensitive devices, electric switches.

3. Time Delay – thru clock, burning fuse, chemical delay or

atmosphere pressure
10/03/2021 33

TERRORIST TACTICS
1. ARSON
2. HIJACKING
3. ASSASSINATION/LIQUADATION
4. AMBUSH
5. KIDNAPPING
6. HOSTAGE TAKING
7. ROBBERY/EXTORTION
8. PROGRESSIVE TAXATION
9. RAID/ATTACK
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POSSIBLE TARGETS OF TERRORIST

A. Military/Police – they targets of terrorist because military, para-military
and police elements are sources of arms, explosives and other weaponry.
B. Engineering and Emergency System – hydro electric plants, gas
facility site, dams etc.
C. Communication and Supplies – equipment warehouses, lines and
facilities of communication, chemical storage sites and the like.
D. Transportation Facilities – rail lines, cars, bus depots, airports and
aircraft, main land routes and bridges
E. VIPs – diplomatic corps, government officials, corporate executives,
police and the like.
10/03/2021 35

Policies in Handling Crisis/Hostage Situation

Coordinated Government Response to a Crisis (EO 320 as amended by EO 366
series of 1996) – the government shall handle a terrorist-based crisis through a
Crisis Management Committee (CMC) that is activated by the appropriate level of
the Peace and Order Council (POC) with jurisdiction over the incident.

CMC Organizational Structure: NATIONAL LEVEL

CHAIRMAN – SEC, DILG
MEMBERS:
SEC, DNDSEC, DSWD SEC, DOJ C, PNPCSAFP, Other Concerned Cabinet
 10/03/2021 36

HOSTAGE NEGOTIATION
TERMS TO PONDER:
1. Hostage – a person or entity who is held by a captor. Someone who is
seized by a criminal abductor in order to compel another party such as a
relative, employer, law enforcement, or government to act, or refrain from
acting, in a particular way, often under threat of serious physical harm to the
hostage(s) after expiration of an ultimatum.
2. Hostage Taker – a person or party who seize(s) or hostage(s) is/are known
as hostage takers.
3. Hostage Negotiation – a mutual discussion between authorities and a
hostage-taker or barricaded offender leading to an agreement concerning the
release of hostages or the surrender of the offender.
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4. Special Threat –any situation involving a sniper, barricaded criminals,

terrorist activity, or hostage-taker(s) that is beyond the capacity of standard
police equipment, manpower, & training.

5. Special Reaction Team –refers to any team of military/police personnel

(SWAT/SAF) especially trained, armed, & equipped to contain & neutralize
a special threat.

6. Negotiation –the process of interpersonal communication in which

interested parties resolve disputes, agree upon courses of action, bargain for
individual or collective advantage, &/or attempt to craft outcomes which
serve their mutual interest. It is usually regarded as a form of alternative
dispute resolution.
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CATEGORIES OF HOSTAGE TAKER

1. PROFESSIONAL HOSTAGE TAKER
• the professional criminal who has his escape blocked
during the commission of a crime.
• Usually the easiest type of hostage taker to deal with is
the professional criminal.
• He is considered a relatively rational thinker who, after
assessing the salutation & weighing the odds, in most
cases comes to terms w/ the police & refrains from
unnecessary violence or useless killing.
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2. Psychotic Hostage Taker - are mentally ill people who take

hostages during a period of psychiatric disturbance.

3. Person in Crisis- are people who take hostages during a

period of prolonged frustration, despair & problems.

4. Common Criminals – are people who take hostages for

personal, rather than ideological reasons. Reasons why
common criminals take hostages: escape, money, &
transportation.
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5. Prisoners – are people who take hostages because of

dissatisfaction & discontent regarding their living
conditions in prison.

6. Terrorist or Fanatic Hostage Taker – are

ideologically-inspired individuals or groups of people
who take hostages because of political & ideological
beliefs.
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PHASES OF HOSTAGE SITUATION

1. Capture Phase - In terrorists situation, the strike team is brought
together and briefed on the specific primary and alternate targets.
They conduct final rehearsals to fine tune the operation, move to the
attack site, & then carry out the plan.

2. Transportation/Consolidation Phase – In some case, the hostage

takers have enough freedom to transport their victim's to a site they
deemed adequate as a confinement area. In other case, the hostage
taker are forced or choose to make do with what they have & remain
at or near the capture site, setting up a defensive perimeter.
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3. Holding Phase (HP) – known as the “lengthiest phase”. In many

ways, this is the safest phase for the hostage. The situation has had a
chance to stabilize. There is little or no direct action taken by the
authorities. The HP is a waiting period and is filled w/ negotiations.

4. Termination Phase – is generally a very tense time for all people

involved in the crisis. The easiest & safest termination for the
hostage is a voluntary release followed by hostage takers surrender.
More dangerous is the escape, & most dangerous is the rescue by an
outside force or the killing of the hostages as a means to end the
crisis.
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Why Negotiate?
Negotiation has many advantages.
During negotiation, information is gathered about the
offender as well as the hostages to allow invaluable
communication & gaining of a sense of understanding
between the offender, law enforcement officials, & his
victim. Thus, there is decrease in stress and anxiety.
Time used in negotiating allows the hostage taker to
reevaluate his position and to consider alternatives to the
present course of action.
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Time- is an important factor working for the police. As a general

rule, Dr. Schlossberg notes:
“The more time the felon spends with the hostage, the less likely
he is to take the hostage's life, because they become acquainted
and develop feelings for one another.”
the passage of time also gives the police an opportunity to prepare
for different eventualities & permits the felon to make a mistake
Negotiators refer to these quiet intervals as “dynamic inactivity”.
As long as time passes without any harm to persons involved, the
negotiators are making progress. Field commanders should keep in
mind that patience is a virtue.
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3 Main Categories of Negotiation Team

1. Primary Negotiator – This negotiator actually communicates
with the subject.
2. Secondary (Backup) Negotiator – This negotiator assist the
primary negotiator by offering advice, monitoring the
negotiations, keeping notes, & ensuring that the primary
negotiator sees & hears everything in the proper perspective.
3. Third Negotiator – These intelligence negotiator interviews
person associated with the suspect to compile a criminal history
& a history of mental illness, as well as to gather other relevant
information.
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Who is a Detective Negotiator?

It takes a singular type of individual to deal unarmed, face-to-face, with an
armed felon holding a hostage.
He must be cool, resourceful, mature, & most of all, effective in verbal
communication.
The ff criteria are being used to select the members of the negotiating team:
• volunteers only;
• good physical condition;
• mature appearance;
• good speaking voice;
• skilled interrogator; and
• representative of various ethnic & racial groups with, if possible, the ability to speak a
foreign language.
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Must Training of Hostage Negotiation Team

1. Psychology – The greatest emphasis was placed on intensive
psychological training to prepare team members to various situations and
develop strategies using psychological techniques rather than force to
obtain the safe release of hostages.
2. Physical Training – This encompassed general upgrading of physical
condition as well as weapon-disarming methods and techniques of
unarmed self-defense.
3. Firearms – Firearms training includes the .38 revolver, 9-mm sub
machine gun, .223-caliber sniper scope rifle, shotgun (double barbell &
pump), 37-mm tear gas launcher, .25-caliber automatic, & .22 caliber
Derringer w/ bulletproof vest during the firing of all weapons.
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Must Training of Hostage Negotiation Team

4. Electronic Equipment- All members must be familiar with
& had to qualify in the use of a mini phone wireless
transmitter & recorder and in the use of electronic tracking
devices w/c utilize range & relative bearing features that can
be quite valuable.
5. Emergency Rescue Ambulance – Each team must learn to
operate the emergency rescue ambulance, a full armored
personnel carrier. This includes the use of its auxiliary
equipment, that is, the public address system, intercom, radio
equipment, fire fighting system, & first-aid gear.
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Must Training of Hostage Negotiation Team

6. Vehicle Operation – Instructions must be given in the operation of
the specially equipped escape & chase vehicles, including auxiliary
equipment. Special attention must be paid to those streets & routes
from various locations in the city to airports or other destinations
that would offer the best tactical advantage.
7. Retraining – In addition to this initial program, debriefing are
scheduled to critique every significant hostage situation that takes
place anywhere.
8. Liaison Training – This training could teach or guide the members
of the negotiation team how to develop relationship or connection
to other personnel needed during the negotiation process.
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What to do when Hostage Crisis occur?

A. First Arrival – Police will go on a hostage scene before a negotiator and may be trained to use
the ICER concept.

1. Isolate (I) - Isolate the hostage zone, creating an outer perimeter & keeping keep onlookers
beyond the police safety line.
2. Contain (C) - Limit the mobility of the hostage taker to the smallest area possible (the inner
perimeter) & prevent them from observing the police activity.
3. Evaluate (E) - Evaluate the original information provided, which may be from the hostage taker or
a representative, or perhaps a member of the public. W/out causing escalation, gather as much
additional information as possible, including the number of hostage takers & hostages, their
appearance, weapons & so on. Assess the threat & estimate the resources that may be needed to
handle the situation.
4. Report (R) -Report all available information gathered, including on the hostage takers & hostages,
events, weapons, zones, routes & so on, informing other officers & the chain of command.
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B. Assessing the Hostage Situation:

1. Preventing Early Harm – The first job of the hostage negotiator is to

create safety.
2. Getting Organized – The next step is to organize communications with
the hostage-takers.
3. Finding Information – The negotiator will want to find as much
information about the situation as possible, including:
a. the numbers & names of the hostage-takers
b. what they are demanding & what they really want
c. their emotional state & how close they are to harming hostages
d. the numbers & general health of hostages
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4. Getting Close – A critical process used in many hostages

negotiations is to get close to them, to gain their trust.

5. Creating Normality – While there may be chaos & panic on all

sides, the negotiator first seeks to create calm. They talk in a calm
voice & do a great deal of listening. In particular, they seek to
establish a sense of normality amongst the emotion, a space in w/c
the hostage-takers can talk w/ the negotiator as reasonable people,
much as you would talk with any normal person on the phone. The
negotiator is always there & always ready to talk.
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6. Creating Humanity – W/in the normality, the

negotiator listens uncritically to hostage-taker,
accepting them as they are & creating a sense of
humanity. From that humanity, they then can extend to
discussing the hostages, how they are bearing up &
whether they are unwell.
7. Developing Authority – The negotiator may also seek
to position himself as an authority figure. This may
start being authoritative on behalf of the hostage, for
example in getting them communications & food.
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C. Developing the Scene

Once a relationship is established, the negotiator can seek
to move the situation forward.

1. Small Step – Progress maybe in small steps, as trust and relationships continue
to be built. Food and medicine may be given. Conversation with a hostage may
be requested. Everyday chat creates normality. Depending on the urgency of
the situation, the negotiator may seek to speed up or slow down the talking. If
hostages are hurt, then speed may be needed. If the hostages are hurt, then
speed may be needed. If the hostage-takers are requiring transport or other
things that would lead to more problems, then it may be more prudent to insert
delays, such as saying you are “looking into it”.
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2. Managing Stress – Stress and tension will continue throughout the

negotiation in some may deliberately manage this, reducing stress to create
hostage safety, but also possibly increasing stress to wear down the hostage-
taker.

3. Exploring Solutions – Talks will eventually get around to what can be done
in resolving the situation. The negotiator may ask the hostage-taker for his
thoughts and may offer possibilities themselves. Of course the safe release of
the hostages is always an important element. The goal of the hostage-taker
may simply to escape and may be for publicity or other gain. If this is not
acceptable to the authorities, for example release of a captured terrorist leader,
then other alternatives must be resorted.
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D. Releasing the Hostages:

1. Wearing Down – Sometimes, just talk, talk, talk is enough to wear down
the hostage-takers and for them to give themselves up. High emotions do
not last forever and are followed by exhaustion. The ideal negotiations
thus ends with the hostage-taker agreeing to let everyone go.

2. Releasing the Weak – Depending on the number of people taken

hostage, a release of children, old people & those w/ medical conditions
may be negotiated. It allows the hostage-takers to show that they are not
“bad “people after all & also rids them of the problems of illness &
wailing children.
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3. Concessions for People – People may also be exchanged for various

concessions, from food to publicity. When something is given to the
hostage-takers, especially if it is on their list of demands, then a
concession may be requested in return, with the ultimate concession of
hostage release.
4. The Final Assault – It is a very delicate balance for the negotiator
when no clear exchange can be found and the hostage-takers look like
they are going to kill hostages. Which they are seeking to create
exchange, the negotiator must also find the point at which they pull the
plugs & let armed forces take over. Even though some hostages may be
killed, fore may ultimately be the best solution to minimize total harm.
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Syndromes in Hostage Negotiation

A. Stockholm Syndrome (SS)
• is used to describe a paradoxical psychological phenomenon wherein
hostages express adulation and have positive feelings towards their
captors that appear irrational in light of the danger or risk endured by
the victims.
• is a theory that has shown that the longer the hostage-taker spends with
his hostages, a bond develops that creates a close relationship of
understanding between the parties involved. This is positive for the
hostages since they are less likely to be harmed; however, hostages may
later refuse to testify in court against the hostage-taker or refuse release
to safety until the crisis is over. Norrmalmstorg robbery in
Kreditbanken.
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B. Lima Syndrome - An inverse of SS, in which abductors

develop sympathy for their hostages. Named after the
abduction at Japanese Embassy in Lima, Peru in 1996.

C. London Syndrome - A condition that is the polar of the

SS. One or more hostages respond to captors w/ belligence
& non-cooperation.