“Crisis prevention is better than cure.” When emerging threats are detected, this chapter presents measures to prevent crises from occurring or mitigate its consequence when they occur, through policy formulation, contingency and crisis action planning. It prescribes uniform processes on these measures in order to harmonize inter-agency efforts in crisis prevention and response.
Section 3-1 Policy Process in Crisis Management
Policy describes the intention of the government and provides the principles that govern action towards certain ends. In the context of crisis management, policy directs and becomes the consideration from where responses to crises or disasters are derived. Strong and relevant policies enhance responses to crises and disasters.
Policies are formulated by the executive and legislative branches of government. The Congress is the highest policy-making body whose deliberations are made into laws. Other policies in the form of a law are international treaties and juridical decisions. While a policy guides actions to achieve a desired outcome, a law can compel or prohibit behaviors. The 1987 Constitution serves as a guide in the formulation of all laws and policies of the country. It is the responsibility of the Judiciary to declare whether a law or policy is constitutional or not.
As mentioned above, policy formulation in government is the responsibility of the Executive and Legislative branches. The President being the head of the Executive Department has formidable legislative powers. The Administrative Code of 1987 provides that the President can issue policies in the form of: Executive Orders, Administrative Orders, Proclamations,
Memorandum Orders, Memorandum Circulars, and as Commander in Chief of the AFP, General and Special Orders.
Heads of Agencies in the Executive Branch are also empowered to issue policies that will guide the actions of bureaus, offices, units, and individuals for their desired end in relation to the threat or crisis.
The Local Government Code also empowers Local Government Units to formulate their own policies. Local Chief Executives can issue executive orders while the Sanggunian at the provincial, municipal or city level, and the barangay level formulates policies for their constituents (e.g. ordinances).
3-1.1 Policy Process
With different sectors of the government empowered to formulate policies, this chapter prescribes a policy process for the purpose of crisis management as shown below.
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a. Policy Analysis
The first step in policy analysis is recognizing that a threat exists, which could result to crisis if it is not addressed. This is followed by studying the threat and its causes in detail. This stage involves determining how aware the public is of the threat, deciding who should participate in addressing it, and considering what means are available to prevent its occurrence or mitigate its effects. Answers to these questions help policy makers gauge what policy changes are needed, if any, to address the identified threat. The agenda — which problems are addressed — can be set by the public, interest groups, government officials, and other stakeholders.
b. Policy Formulation
This step is typically marked by discussion and debate between government officials, interest groups, and individual citizens to identify potential obstacles and, to suggest alternative solutions, set clear goals and list the steps that need to be taken to achieve them. This part of the process can be difficult, and often, compromises will be required before policies can be written.
The following information must be found in a policy formulated for the purpose of crisis management:
1. A clear identification of the emerging threat or crisis; 2. A clear identification of the national goal (end state);
3. Guidance of the President and/or Head of Lead Agency or C-OPR or the Chairperson, local CMC;
4. The concept on how to address the threat;
5. The agency or office primarily responsible in addressing the potential threat or crisis, and the command and control relationship with other agencies;
6. A clear-cut task distribution – identifying the lead and the support roles; 7. A monitoring and evaluation mechanism for activities; and
8. Identification of source of fund or support.
c. Policy Implementation
Crisis management policies are promulgated through official written documents. These policy documents often come with the endorsement or signature of the President or other executive powers to legitimize the policy and demonstrate that it is considered in force. Such documents often have standard formats that are particular to the organization issuing the policy. The approval of a policy for crisis management is generally followed by a contingency plan. Figure 3-1.2 illustrates the nexus of a policy to a contingency plan prescribed by this manual. At the national level, the Office of the National Security Adviser (ONSA) or the Lead Agency/C-OPR undertakes Strategic, Operational and Tactical Situation Awareness to determine emerging threats. The response to emerging threats may be decisions to undertake specific courses or policy recommendations. ONSA monitors the actions taken by lead agencies in addressing an emerging threat. The lead agency, meanwhile, formulates specific guidelines for its units and offices to support decisions and recommendations made. Similarly, local government units shall specify guidelines vis-a-vis the decisions and policy recommendations made by higher authorities.