MEMO re Implementing Guidelines on the use of ICS - National ...

In the Philippines, the NDRRMC, through the Office of Civil Defense (OCD), took the lead in theimplementation of the ASEAN-US Cooperation on DM. Partner agencies a<strong>re</strong> the Department ofLocal Government - Bu<strong>re</strong>au of Fi<strong>re</strong> Protection (DILG-BFP), Department of Health (DOH),Department of Social Welfa<strong>re</strong> and Development (DSWD), Philippine National Police (PNP), ArmedForces of the Philippines (AFP), Philippine Red Cross (PRC), Metro Manila Development Authority(MMDA), Fi<strong>re</strong> National Training Institute (FNTI), Subic Bay Metropolitan Authority (SBMA), the CityGovernment of Olongapo, Davao City Rescue 911 and Amity Public Safety Academy (APSA).Among the activities that we<strong>re</strong> conducted in the country under Phases 1 and 2 of the Programinclude the following:• Phase 1 (2003-2005) – Introduction of ICS to selected NDCC (now known as NDRRMC)Member Agencies; initial adaptation initiatives to the Philippine Disaster ManagementSystem context and ICS course material adaptation; Training of Trainers on ICS and PilotTesting of adapted course materials• Phase 2 (2009-July 2012) – ICS Inception Workshop; ICS Instructor Development throughthe conduct of six (6) ICS Courses, namely: 5-day ICS Basic/Intermediate Course ( July 19-23, 2010), Integrated Planning Course (Oct. 11-21, 2010), Administration and FinanceSection Chief Course (Feb. 28-Mar. 1, 2011), Operations Section Chief Course (Mar. 3-4,2011), Logistics Section Chief Course (Mar. 4-7, 2011), and Incident Commander Course(Mar. 8-11, 2011).Thirty-two (32) participants from partner agencies have successfully completed the abovecourses and certified as ICS National Cad<strong>re</strong> of Instructors by the NDRRMC-OCD andUnited States Department of Agricultu<strong>re</strong> – Fo<strong>re</strong>st Service (USDA-FS). They a<strong>re</strong> nowconstituted as the co<strong>re</strong> of the NDRRMC Incident Management Team (NIMT) who can bemobilized by the National Council, as necessary, to assist in on-scene disaster <strong>re</strong>sponseand management in affected a<strong>re</strong>as of the archipelago.On December 24 2009, the ASEAN Ag<strong>re</strong>ement on Disaster Management and Emergency Response(AADMER) was ratified by the ten AMS and called on the Member States, among others, to p<strong>re</strong>pa<strong>re</strong>standard operating procedu<strong>re</strong>s for <strong>re</strong>gional cooperation and national action such as <strong>re</strong>gional standbyarrangements and coordination of disaster <strong>re</strong>lief and emergency <strong>re</strong>sponse.Mo<strong>re</strong>over, RA 10121, s-2010, otherwise known as An Act St<strong>re</strong>ngthening the Philippine Disaster RiskReduction and Management System, Providing for the National Disaster Risk Reduction andManagement Framework and Institutionalizing the National Disaster Risk Reduction andManagement Plan, Appropriating Funds The<strong>re</strong>for and For Other Purposes, has <strong>re</strong>posed on theOffice of Civil Defense the primary mission “to administer a comp<strong>re</strong>hensive national civil defenseand disaster risk <strong>re</strong>duction and management program by providing leadership in the continuousdevelopment of strategic and systematic approaches as well as measu<strong>re</strong>s to <strong>re</strong>duce thevulnerabilities and risks to hazards and manage the consequences of disasters”. Section 9 of thesaid law provides the functions / operational di<strong>re</strong>ctions that OCD shall undertake to effectivelyimplement its mission. One of these functions is “to formulate standard operating procedu<strong>re</strong>s for thedeployment of rapid assessment teams, information sharing among agencies and coordination(underscoring supplied) befo<strong>re</strong> and after disasters at all levels.Further, Rule 7 (h), <strong>Implementing</strong> Rules and Regulations (IRR) of RA 10121, has exp<strong>re</strong>sslyprovided for the establishment of an Incident Command System (ICS) as part of the country’s onscenedisaster <strong>re</strong>sponse system to ensu<strong>re</strong> the effective consequence management of disasters o<strong>re</strong>mergencies.Hence, in line with the objectives of AADMER and RA 10121, the Government of the Philippinesthrough the NDRRMC, he<strong>re</strong>by adopts and integrates the Incident Command System (ICS) as an onsceneincident management mechanism within the Philippine Disaster Risk Reduction andManagement System (PDRRMS). Towards this end, <strong>re</strong>gular conduct of ICS training for disastermanagers and <strong>re</strong>sponders at all DRRMC levels, non-government organizations and private sectoragencies and organization of Incident Management Teams for disaster <strong>re</strong>sponse and management2

at the on-scene level should be pursued and integrated in the ICS development and capacitybuilding program of all DRRMCs and other agencies concerned .II.OBJECTIVESThis Memorandum Circular is aimed to provide guidance to all DRRMCs and other agenciesconcerned from both government and private sectors on the institutionalization and proper use ofIncident Command System (ICS) as a tool to organize on-scene operations for a broad spectrum ofdisasters or emergencies from small to complex incidents, both natural and human-induced.III.SCOPE AND COVERAGEThis Memorandum Circular shall apply to all DRRMCs and other agencies concerned, whethergovernment or private, that a<strong>re</strong> <strong>re</strong>sponsible for all-hazards incident management in their <strong>re</strong>spectivea<strong>re</strong>as of jurisdiction. It shall specifically cover on-scene management of emergency <strong>re</strong>sponseoperations from disaster impact to the immediate emergency <strong>re</strong>sponse phase of an incident, withpriority objectives of saving lives, ensuring safety of <strong>re</strong>sponders and others, protecting property andenvironment, and incident stabilization.IV.DEFINITION OF TERMSAgency Administrator/Executive or Responsible Official - the official <strong>re</strong>sponsible foradministering policy for an agency or jurisdiction, having full authority for making decisions, andproviding di<strong>re</strong>ction to the management organization for an incident; he is normally the Chairpersonof the DRRMC or Agency Head or their duly authorized <strong>re</strong>p<strong>re</strong>sentative.All-Hazards – any incident, natural or human-induced, that warrants action to protect life, property,environment, public health, or safety and minimize disruptions of government, social or economicactivities.A<strong>re</strong>a Command - an organization established to oversee the management of multiple incidents thata<strong>re</strong> each being handled by a separate Incident Command System organization or of a very large o<strong>re</strong>volving incident that has multiple Incident Management Teams engaged. An agencyadministrator/executive or other public official with jurisdictional <strong>re</strong>sponsibility for the incident usuallymakes the decision to establish an A<strong>re</strong>a Command. It is activated only if necessary, depending onthe complexity of the incident and incident management span-of-control considerations.Assistant - title for subordinates of principal Command Staff positions. The title indicates a level oftechnical capability, qualifications, and <strong>re</strong>sponsibility subordinate to the primary positions. Assistantsmay also be assigned to unit leaders.Base - the location at which primary Logistics functions for an incident a<strong>re</strong> coordinated andadministe<strong>re</strong>d. The<strong>re</strong> is only one Base per incident. (Incident name or other designator will be addedto the term Base). The Incident Command Post may be co-located with the Base.Branch – the organizational level having functional or geographical <strong>re</strong>sponsibility for major aspectsof incident operations. A branch is organizationally situated between the section and division orgroup in the Operations Section, and between the section and units in the Logistics Section.Branches a<strong>re</strong> identified by the use of Roman numerals or by functional a<strong>re</strong>a.Camp - a geographical site within the general incident a<strong>re</strong>a (separate from the Incident Base) that isequipped and staffed to provide sleeping, food, water, and sanitary services to incident personnelChain of Command - series of command, control, executive or management positions inhierarchical order of authority; an orderly line of authority within the ranks of the incidentmanagement organizationChief - The Incident Command System title for individuals <strong>re</strong>sponsible for management of functionalSections : Operations, Planning, Logistics, Finance/Administration and Intelligence/Investigations (ifestablished as a separate Section)3

Command - the act of di<strong>re</strong>cting, ordering, or controlling by virtue of explicit statutory, <strong>re</strong>gulatory,or delegated authorityCommand Staff - Consists of Public Information Officer, Safety Officer, Liaison Officer, and otherpositions as <strong>re</strong>qui<strong>re</strong>d, who <strong>re</strong>port di<strong>re</strong>ctly to the Incident Commander. They may have assistant orassistants, as neededCommon Terminology - normally used words and phrases-avoids the use of diffe<strong>re</strong>ntwords/phrases for same concepts, consistencyCommunity - consists of people, property, services, livelihoods and environment; a legallyconstituted administrative local government unit of a country, e.g. municipality or district.Coordination - bringing together of organizations and elements to ensu<strong>re</strong> effective counter disaster<strong>re</strong>sponse. It is primarily concerned with the systematic acquisition and application of <strong>re</strong>sources(organization, manpower and equipment) in accordance with the <strong>re</strong>qui<strong>re</strong>ments imposed by theth<strong>re</strong>at of impact of disaster.Delegation of Authority – a statement or instruction given to the Incident Commander by theAgency Executive or Responsible Official delegating authority and assisgning <strong>re</strong>sponsibility. TheDelegation of Authority can include objectives, priorities, expectations, constraints and otherconsiderations or guidelines as needed.Deputy - a fully qualified individual who, in the absence of the superior, can be delegated theauthority to manage a functional operation or perform a specific task. In some cases a deputy canact as <strong>re</strong>lief for superior, and the<strong>re</strong>fo<strong>re</strong> must be fully qualified in the position. Deputies generally canbe assigned to the Incident Commander, General Staff and Branch Di<strong>re</strong>ctors.Disaster - a serious disruption of the functioning of a community or a society involving widesp<strong>re</strong>adhuman, material, economic or environmental losses and impacts, which exceeds the ability of theaffected community or society to cope using its own <strong>re</strong>sources; an actual th<strong>re</strong>at to public health andsafety whe<strong>re</strong> the local government and the emergency services a<strong>re</strong> unable to meet the immediateneeds of the community; an event in which the local emergency management measu<strong>re</strong>s a<strong>re</strong>insufficient to cope with a hazard, whether due to a lack of time, capacity or <strong>re</strong>sources, <strong>re</strong>sulting inunacceptable levels of damage or number of casualties.Disaster Response - the provision of emergency services and public assistance during orimmediately after a disaster in order to save lives, <strong>re</strong>duce health impacts, ensu<strong>re</strong> public safety andmeet the basic subsistence needs of the people affected. Disaster <strong>re</strong>sponse is p<strong>re</strong>dominantlyfocused on immediate and short-term needs and is sometimes called "disaster <strong>re</strong>lief'.Emergency - unfo<strong>re</strong>seen or sudden occur<strong>re</strong>nce, especially danger, demanding immediate action;an actual th<strong>re</strong>at to an individual’s life or to public health and safety which needs immediate <strong>re</strong>sponseEmergency Management - the organization and management of <strong>re</strong>sources and <strong>re</strong>sponsibilities foradd<strong>re</strong>ssing all aspects of emergencies, in particular, p<strong>re</strong>pa<strong>re</strong>dness, <strong>re</strong>sponse and initial <strong>re</strong>coverysteps; a management process that is applied to deal with the actual or implied effects of hazardsEmergency Operations Center - the physical location at which the coordination of information and<strong>re</strong>sources to support incident management (on-scene operations) activities normally takes placeFinance/Administration Section - the ICS functional section <strong>re</strong>sponsible for approving andtracking all expenditu<strong>re</strong>s and spending <strong>re</strong>lated to the incident.Function - <strong>re</strong>fers to the five major activities in the Incident Command System : Command,Operations, Planning, Logistics, and Finance/Administration. The term function is also used whendescribing the activity involved (e.g., the planning function). A sixth function,Intelligence/Investigations, may ne established, if <strong>re</strong>qui<strong>re</strong>d, to meet incident management need.4

General Staff - a group of incident management personnel organized according to function and<strong>re</strong>porting to the Incident Commander. The General Staff normally consists of the Operations SectionChief, Planning Section Chief, Logistics Section Chief, and Finance/Administrative Section Chief. AnIntelligence/Investigations Chief may be established, if <strong>re</strong>qui<strong>re</strong>d, to meet incident managementneeds.Hazard - a dangerous phenomenon, substance, human activity or condition that may cause loss oflife, injury or other health impacts, property damage, loss of livelihood or services, social andeconomic disruption, or environmental damage; any potential th<strong>re</strong>at to public safety and/or publichealth; any phenomenon which has the potential to cause disruption or damage to people, theirproperty, their services or their environment, i.e., their communities. The four classes of hazards a<strong>re</strong>natural, technological, biological and societal hazards.Incident - an occur<strong>re</strong>nce or event, natural or human-induced, that <strong>re</strong>qui<strong>re</strong>s an emergency <strong>re</strong>sponseto protect life or property. Incidents can, for example, include major disasters, emergencies, terroristattacks, terrorist th<strong>re</strong>ats, civil un<strong>re</strong>st, floods, hazardous materials spills, nuclear accidents, aircraftaccidents, earthquakes, tropical storms, tsunamis, war-<strong>re</strong>lated disasters, public health and medicalemergencies, and other occur<strong>re</strong>nces <strong>re</strong>quiring an emergency <strong>re</strong>sponse.Incident Action Plan (IAP) - an oral or written plan containing general objectives <strong>re</strong>flecting theoverall strategy for managing an incident. It may include the identification of operational <strong>re</strong>sourcesand assignments. It may also include attachments that provide di<strong>re</strong>ction and important informationfor management of the incident during one or mo<strong>re</strong> operational periods.Incident Command - <strong>re</strong>sponsible for overall management of the incident and consists of theIncident Commander, either single or unified command, and any assigned supporting staffIncident Commander (IC) - the individual <strong>re</strong>sponsible for all incident activities, including thedevelopment of strategies and tactics and the ordering and the <strong>re</strong>lease of <strong>re</strong>sources. The IC hasoverall authority and <strong>re</strong>sponsibility for conducting incident operations and is <strong>re</strong>sponsible for themanagement of all incident operations at the incident site.Incident Command Post (ICP) - the field location whe<strong>re</strong> the primary functions a<strong>re</strong>performed. The ICP may be co-located with the incident base or other incident facilitiesIncident Command System (ICS) - is a standardized, on-scene, all-hazard incident managementconcept; allows its users to adopt an integrated organizational structu<strong>re</strong> to match the complexitiesand demands of single or multiple incidents without being hinde<strong>re</strong>d by jurisdictional boundaries. ICSis non-permanent organization and is activated only in <strong>re</strong>sponse to disasters or emergencies.ICS National Cad<strong>re</strong> - group of individuals who successfully underwent the National Training ofTrainers on Incident Command System, didactic and practicum, covering the six (6) ICS coursesconducted by the US Department of Agricultu<strong>re</strong> – Fo<strong>re</strong>st Service in the Philippines from March,2010 to July, 2011, under the ASEAN – US Cooperation on Disaster Management, ICS CapabilityBuilding Program, Phase 2.Incident Management Team (IMT) - an Incident Commander and the appropriate Command andGeneral Staff personnel assigned to the incident. IMTs a<strong>re</strong> generally grouped in five types. Types Iand II a<strong>re</strong> National Teams, Type III a<strong>re</strong> Regional Teams, Type IV a<strong>re</strong> discipline or large jurisdictionspecific,while Type V a<strong>re</strong> ad-hoc incident command organizations typically used by smallerjurisdictions.The ICS National Cad<strong>re</strong> <strong>re</strong>fer<strong>re</strong>d to above shall be initially constituted as a National IMT of theNDRRMC. IMTs shall be organized as one of the <strong>re</strong>sponse teams of DRRMCs and other agenciesconcerned that can be <strong>re</strong>adily mobilized to assist in affected a<strong>re</strong>as.Incident Objectives - statements of guidance and di<strong>re</strong>ction needed to select appropriatestrategy(ies) and the tactical di<strong>re</strong>ction of <strong>re</strong>sources. Incident objectives a<strong>re</strong> based on <strong>re</strong>alisticexpectations of what can be accomplished when all allocated <strong>re</strong>sources have been effectively5

deployed. Incident objectives must be achievable and measurable, yet flexible enough to allowstrategic and tactical alternatives.Interoperabilty – allows emergency management / <strong>re</strong>sponse personnel and their affiliatedorganizations to communicate within and across agencies and jurisdictions via voice, data, or videoon-demand,in <strong>re</strong>al time, when needed and when authorized.Jurisdiction – a range or sphe<strong>re</strong> of authority. Public agencies have jurisdiction at an incident<strong>re</strong>lated to their legal <strong>re</strong>sponsibilities and authority. Jurisdictional authority at an incident can bepolitical or geographical (e.g. town, city) or functional (e.g. law enforcement, public health).Liaison Officer - a member of the Command Staff <strong>re</strong>sponsible for coordinating with <strong>re</strong>p<strong>re</strong>sentativesfrom cooperating and assisting agencies or organizations.Logistics Section - the section <strong>re</strong>sponsible for providing facilities, services, and materialsupport for the incident.P<strong>re</strong>pa<strong>re</strong>dness - measu<strong>re</strong>s taken to st<strong>re</strong>ngthen the capacity of the emergency services to <strong>re</strong>spond inan emergencyTactics - <strong>re</strong>fers to those activities, <strong>re</strong>sources and maneuvers that a<strong>re</strong> di<strong>re</strong>ctly applied to achievegoals; deploying and di<strong>re</strong>cting <strong>re</strong>sources on an incident to accomplish the objectives designated bythe strategy.Unified Command (UC) - an Incident Command System management option that can beused when mo<strong>re</strong> than one agency has incident jurisdiction or when incidents cross politicalboundaries/ jurisdictions. Agencies work together through the designated members of the UC, oftenthe senior person from agencies and/or disciplines participating in the UC, to establish a commonset of objectives and strategies and a single Incident Action Plan.Unity of Command - the concept by which each person within an organization <strong>re</strong>ports to one andonly one designated person. The purpose of unity of command is to ensu<strong>re</strong> unity of effort under one<strong>re</strong>sponsible commander for every objective; principle of management stating that each individualinvolved in incident operations will be assigned to only one supervisor.V. BASIC ICS CONCEPTS AND PRINCIPLESTo ensu<strong>re</strong> the standard use and application of ICS, the following basic concepts and principles foron-scene disaster operations a<strong>re</strong> he<strong>re</strong>by adopted:1. FOURTEEN (14) MANAGEMENT CHARACTERISTICS OF ICSICS is based on fourteen (14) proven management characteristics, each of which contributes to thest<strong>re</strong>ngth and efficiency of the overall system. These a<strong>re</strong> as follows:a. Common TerminologyThe use of common terminology in ICS will allow diverse incident management and supportorganizations to work together across a wide variety of incident management functions and hazardscenarios. This common terminology applies to the following:1) Organizational FunctionMajor functions and functional units with incident management <strong>re</strong>sponsibilities a<strong>re</strong> named anddefined. Terminology for the following organizational elements is standard and consistent, namely,Command, Planning, Operations, Logistics and Administration and Finance.2) Resource DescriptionsMajor <strong>re</strong>sources—including personnel, facilities, and major equipment and supply items—thatsupport incident management activities a<strong>re</strong> given common names and a<strong>re</strong> “typed” with <strong>re</strong>spect to6

their capabilities as follows: “Assigned”, “Available” and “Out-of-Service”. This is to help avoidconfusion and to enhance interoperability.3) Incident FacilitiesCommon terminology is used to designate the facilities established in the vicinity of the incidenta<strong>re</strong>a that will be used during the course of the incident.b. Modular OrganizationThe ICS organizational structu<strong>re</strong> develops in a modular fashion based on the size and complexity ofthe incident, as well as the specifics of the hazard environment c<strong>re</strong>ated by the incident.Responsibility for the establishment and expansion of the ICS modular organization ultimately <strong>re</strong>stswith Incident Command, which bases the ICS organization on the <strong>re</strong>qui<strong>re</strong>ments of the situation.c. Management by ObjectivesManagement by objectives is communicated throughout the enti<strong>re</strong> ICS organization and includes:a. Knowing agency policy and di<strong>re</strong>ction.b. Establishing incident objectives.c. Developing strategies based on incident objectives.d. Establishing specific, measurable tactics or tasks for various incident managementfunctional activities, and di<strong>re</strong>cting efforts to accomplish them, in support of definedstrategies.e. Documenting <strong>re</strong>sults to measu<strong>re</strong> performance and facilitate cor<strong>re</strong>ctive actions.d. Incident Action PlanCentralized, coordinated incident action planning should guide all <strong>re</strong>sponse activities. An IncidentAction Plan (IAP) provides a concise, cohe<strong>re</strong>nt means of capturing andcommunicating the overall incident priorities, objectives, strategies, and tactics in the context of bothoperational and support activities.e. Span of ControlManageable span of control is key to effective and efficient incident management. Supervisors mustbe able to adequately supervise and control their subordinates, as well as communicate with andmanage all <strong>re</strong>sources under their supervision.f. Incident Facilities and LocationVarious types of operational support facilities should be established in the vicinity of an incident,depending on its size and complexity, to accomplish a variety of purposes. The IC will di<strong>re</strong>ct theidentification and location of facilities based on the <strong>re</strong>qui<strong>re</strong>ments of the situation. ICS facilities shouldinclude Incident Command Posts, Bases, Camps, Staging A<strong>re</strong>as, mass casualty triage a<strong>re</strong>as, pointof-distributionsites, and others as <strong>re</strong>qui<strong>re</strong>d.g. Resource ManagementMaintaining an accurate and up-to-date pictu<strong>re</strong> of <strong>re</strong>source utilization is a critical component ofincident management and emergency <strong>re</strong>sponse. Resources to be identified include personnel,teams, equipment, supplies, and facilities available or potentially available for assignment orallocation.h. Integrated CommunicationsIncident communications should be developed through the use of a common Communicationsplan to ensu<strong>re</strong> interoperability and connectivity between and among operational and support unitsof the various agencies involved. P<strong>re</strong>pa<strong>re</strong>dness planning should the<strong>re</strong>fo<strong>re</strong> endeavor to add<strong>re</strong>ss theequipment, systems, and protocols necessary to achieve integrated voice and data communications.i. Establishment and Transfer of CommandThe command function must be clearly established from the beginning of incident operations. Theagency with primary jurisdictional authority over the incident designates the individual at the scene<strong>re</strong>sponsible for establishing command. When command is transfer<strong>re</strong>d, the process must include abriefing that captu<strong>re</strong>s all essential information for continuing safe and effective operations.7

j. Chain of Command and Unity of CommandAt all times during disaster operations, chain of command and unity of command shall be observed.This is to ensu<strong>re</strong> clarity in <strong>re</strong>porting <strong>re</strong>lationships and eliminate the confusion caused by multiple,conflicting di<strong>re</strong>ctivesk. Unified CommandIn incidents involving multiple jurisdictions, a single jurisdiction with multiagency involvement, ormultiple jurisdictions with multiagency involvement, a Unified Command approach should beapplied to allow agencies with diffe<strong>re</strong>nt legal, geographic, and functional authorities and<strong>re</strong>sponsibilities work together effectively without affecting individual agency authority, <strong>re</strong>sponsibility,or accountability.l. AccountabilityEffective accountability of <strong>re</strong>sources at all jurisdictional levels and within individual functional a<strong>re</strong>asduring incident operations is essential. To this end, Check-In/Check-Out, Incident Action Planning,Unity of Command, Personal Responsibility, Span of Control, and Resource Tracking must beadhe<strong>re</strong>d to within the ICS.m. Dispatch/DeploymentResources should <strong>re</strong>spond only when <strong>re</strong>quested or when dispatched by an appropriate authoritythrough established <strong>re</strong>source management systems. Resources not <strong>re</strong>quested must <strong>re</strong>frain fromspontaneous deployment to avoid overburdening the <strong>re</strong>cipient and compounding accountabilitychallenges.n. Information and Intelligence ManagementThe incident management organization must establish a process for gathering, analyzing,assessing, sharing, and managing incident-<strong>re</strong>lated information and intelligence.2. INCIDENT COMMAND AND GENERAL STAFFThe Incident Command, which comprises the Command and General Staff, shall be <strong>re</strong>sponsible foroverall management of the incident. The Command and General Staff a<strong>re</strong> typically located at theIncident Command Post (ICP).a. Incident CommandThe command function may be conducted in one of two general ways:1) Single Incident CommandSingle incident command maybe applied when an incident occurs within a single jurisdiction andthe<strong>re</strong> is no jurisdictional or functional agency overlap. Overall incident management <strong>re</strong>sponsibility<strong>re</strong>sts on the appropriate jurisdictional authority. In some cases whe<strong>re</strong> incident management crossesjurisdictional and/or functional agency boundaries, a single IC may be designated if ag<strong>re</strong>ed upon. .2) Unified Command (UC)UC for incident management may be applied when a disaster or emergency affects several a<strong>re</strong>as orjurisdictions or <strong>re</strong>qui<strong>re</strong>s multiagency engagement. Unified Command, as an incident managementoption, provides the necessary guidelines to enable agencies with diffe<strong>re</strong>nt legal, geographic, andfunctional <strong>re</strong>sponsibilities to coordinate, plan, and interact effectively. As a team effort, UC allows allagencies with jurisdictional authority or functional <strong>re</strong>sponsibility for the incident to jointly providemanagement di<strong>re</strong>ction through a common set of incident objectives and strategies and a single IAP.Each participating agency maintains its authority, <strong>re</strong>sponsibility, and accountability.b. Command StaffIn an incident command organization, the Command Staff typically includes a Public InformationOfficer, a Safety Officer, and a Liaison Officer, who <strong>re</strong>port di<strong>re</strong>ctly to the IC/UC and may haveassistants as necessary. Additional positions may be <strong>re</strong>qui<strong>re</strong>d, depending on the natu<strong>re</strong>, scope,complexity, and location(s) of the incident(s), or according to specific <strong>re</strong>qui<strong>re</strong>ments established bythe IC/UC.1) Public Information Officer8

The Public Information Officer is <strong>re</strong>sponsible for interfacing with the public and media and/or withother agencies with incident-<strong>re</strong>lated information <strong>re</strong>qui<strong>re</strong>ments. Whether the command structu<strong>re</strong> issingle or unified, only one Public Information Officer should be designated per incident. Assistantsmay be assigned from other involved agencies, departments, or organizations. The IC/UC mustapprove the <strong>re</strong>lease of all incident-<strong>re</strong>lated information. In large-scale incidents or whe<strong>re</strong> multiplecommand posts a<strong>re</strong> established, the Public Information Officer should participate in or lead the JointInformation or Media Center in order to ensu<strong>re</strong> consistency in the provision of information to thepublic.2) Safety OfficerThe Safety Officer monitors incident operations and advises the IC/UC on all matters <strong>re</strong>lating tooperational safety, including the health and safety of emergency <strong>re</strong>sponder personnel. The ultimate<strong>re</strong>sponsibility for the safe conduct of incident management operations <strong>re</strong>sts with the IC/UC andsupervisors at all levels of incident management. The Safety Officer is, in turn, <strong>re</strong>sponsible to theIC/UC for the systems and procedu<strong>re</strong>s necessary to ensu<strong>re</strong> ongoing assessment of hazardousenvironments, including the incident Safety Plan, coordination of multiagency safety efforts, andimplementation of measu<strong>re</strong>s to promote emergency <strong>re</strong>sponder safety as well as the general safetyof incident operations. The Safety Officer has immediate authority to stop and/or p<strong>re</strong>vent unsafe actsduring incident operations. It is important to note that the agencies, organizations, or jurisdictionsthat contribute to joint safety management efforts do not lose their individual identities or<strong>re</strong>sponsibility for their own programs, policies, and personnel. Rather, each contributes to the overalleffort to protect all <strong>re</strong>sponder personnel involved in incident operations.3) Liaison OfficerThe Liaison Officer is Incident Command’s point of contact for DRRMC/other government agency<strong>re</strong>p<strong>re</strong>sentatives, NGOs, and the private sector.to provide input on their agency’s policies, <strong>re</strong>sourceavailability, and other incident-<strong>re</strong>lated matters. Under either a single-IC or a UC structu<strong>re</strong>,<strong>re</strong>p<strong>re</strong>sentatives from assisting or cooperating agencies and organizations coordinate through theLiaison Officer.4) Additional Command StaffAdditional Command Staff positions may also be necessary, depending on the natu<strong>re</strong> andlocation(s) of the incident or specific <strong>re</strong>qui<strong>re</strong>ments established by Incident Command.3. GENERAL STAFFThe General Staff is <strong>re</strong>sponsible for the functional aspects of the incident command structu<strong>re</strong>. TheGeneral Staff typically consists of the Operations, Planning, Logistics, and Finance/AdministrationSection Chiefs. The Section Chiefs may have one or mo<strong>re</strong> deputies assigned, with the assignmentof deputies from other agencies encouraged in the case of multijurisdictional incidents.a. Operations SectionThis Section is <strong>re</strong>sponsible for all tactical activities focused on <strong>re</strong>ducing the immediate hazard,saving lives and property, establishing situational control, and <strong>re</strong>storing normal operations.Lifesaving and <strong>re</strong>sponder safety will always be the highest priorities and the first objectives in theIAP. The Operations Section Chief is <strong>re</strong>sponsible to Incident Command for the di<strong>re</strong>ct managementof all incident-<strong>re</strong>lated tactical activities. The Operations Section Chief will establish tactics for theassigned operational period. An Operations Section Chief should be designated for each operationalperiod, and <strong>re</strong>sponsibilities include di<strong>re</strong>ct involvement in development of the IAP.The Operations Section is composed of the following:1) BranchesBranches may be functional, geographic, or both, depending on the circumstances of the incident. Ingeneral, Branches a<strong>re</strong> established when the number of Divisions or Groups exceeds the<strong>re</strong>commended span of control. Branches a<strong>re</strong> identified by the use of Roman numerals or byfunctional a<strong>re</strong>a.2) Divisions and GroupsDivisions and/or Groups a<strong>re</strong> established when the number of <strong>re</strong>sources exceeds the manageablespan of control of Incident Command and the Operations Section Chief. Divisions a<strong>re</strong> established to9

divide an incident into physical or geographical a<strong>re</strong>as of operation. Groups a<strong>re</strong> established to dividethe incident into functional a<strong>re</strong>as of operation. For certain types of incidents, for example, IncidentCommand may assign evacuation or mass-ca<strong>re</strong> <strong>re</strong>sponsibilities to a functional Group in theOperations Section. Additional levels of supervision may also exist below the Division or Grouplevel.3) ResourcesResources may be organized and managed in th<strong>re</strong>e diffe<strong>re</strong>nt ways, depending on the <strong>re</strong>qui<strong>re</strong>mentsof the incident.• Single Resources: Individual personnel or equipment and any associated operators.• Task Forces: Any combination of <strong>re</strong>sources assembled in support of a specific mission oroperational need. All <strong>re</strong>source elements within a Task Force must have commoncommunications and a designated leader.• Strike Teams: A set number of <strong>re</strong>sources of the same kind and type that have an establishedminimum number of personnel. All <strong>re</strong>source elements within a Strike Team must have commoncommunications and a designated leader.The use of Task Forces and Strike Teams is encouraged, when appropriate, to optimize the use of<strong>re</strong>sources, <strong>re</strong>duce the span of control over a large number of single <strong>re</strong>sources, and <strong>re</strong>duce thecomplexity of incident management coordination and communications.b. Planning SectionThe Planning Section collects, evaluates, and disseminates incident situation information andintelligence to the IC/UC and incident management personnel. This Section p<strong>re</strong>pa<strong>re</strong>s status <strong>re</strong>ports,displays situation information, maintains the status of <strong>re</strong>sources assigned to the incident, andp<strong>re</strong>pa<strong>re</strong>s and documents the IAP, based on Operations Section input and guidance from the IC/UC.As shown in the ICS organization below, the Planning Section is comprised of four primary Units, aswell as a number of technical specialists to assist in evaluating the situation, developing planningoptions, and fo<strong>re</strong>casting <strong>re</strong>qui<strong>re</strong>ments for additional <strong>re</strong>sources. Within the Planning Section, thefollowing primary Units fulfill functional <strong>re</strong>qui<strong>re</strong>ments:• Resources Unit: Responsible for <strong>re</strong>cording the status of <strong>re</strong>sources committed to the incident.This Unit also evaluates <strong>re</strong>sources committed cur<strong>re</strong>ntly to the incident, the effects additional<strong>re</strong>sponding <strong>re</strong>sources will have on the incident, and anticipated <strong>re</strong>source needs.• Situation Unit: Responsible for the collection, organization, and analysis of incident statusinformation, and for analysis of the situation as it prog<strong>re</strong>sses.• Demobilization Unit: Responsible for ensuring orderly, safe, and efficient demobilization ofincident <strong>re</strong>sources.• Documentation Unit: Responsible for collecting, <strong>re</strong>cording, and safeguarding all documents<strong>re</strong>levant to the incident.• Technical Specialist(s): Personnel with special skills that can be used anywhe<strong>re</strong> within the ICSorganization.4. The Incident Command System OrganizationThe ICS organization, as an on-scene level command and management structu<strong>re</strong>, should belocated at the ICP, which is generally located at or in the immediate vicinity of the incident site. It isnot a permanent structu<strong>re</strong> nor will <strong>re</strong>place existing DRRMCs / other similar organizations in publicand private agencies or entities. It is designed to enable effective and efficient incidentmanagement by integrating a combination of facilities, equipment, personnel, procedu<strong>re</strong>s, andcommunications operating within a common organizational structu<strong>re</strong>.A typical ICS organization and DRRMC-EOC and ICS Organization interoperability a<strong>re</strong> depicted inAnnexes “A” and “B”, <strong>re</strong>spectively, which form an integral part of this Circular.VI.POLICY STATEMENTS10

1. In line with the policy of the state to develop, promote and implement a comp<strong>re</strong>hensive NationalDisaster Risk Reduction and Management Plan (NDRRMP) that aims to st<strong>re</strong>ngthen the capacityof the national government and the local government units (LGUs), together with partnerstakeholders, to build the disaster <strong>re</strong>silience of communities, and to institutionalizearrangements and measu<strong>re</strong>s for <strong>re</strong>ducing disaster risks, including projected climate risks, andenhancing disaster p<strong>re</strong>pa<strong>re</strong>dness and <strong>re</strong>sponse capabilities at all levels, an all-hazards IncidentCommand System is he<strong>re</strong>by established and institutionalized in the PDRRMS as an on-scenedisaster <strong>re</strong>sponse and management mechanism at all levels of DRRMCs, including public andprivate sector agencies.2. As part of this ICS institutionalization process, all concerned shall endeavor to carry outcapacity building programs for their ICS organization through the conduct of ICS training,organization of an All-Hazard Incident Management Teams (IMTs), development of stand-byarrangements and protocols for IMT notification, activation, deployment and deactivation andother <strong>re</strong>lated activities. The National ICS Cad<strong>re</strong> defined under this Memorandum Circular shalltake the lead in undertaking the ICS capacity building and development program under theleadership of the Office of Civil Defense.3. All incidents a<strong>re</strong> expected to be managed locally through their Local DRRMCs by using theirown emergency <strong>re</strong>sponse teams/personnel, such as Search and Rescue, Rapid Damage andNeeds Assessment and Incident Management Teams, as well as material <strong>re</strong>sources based onthe following criteria:3.1 The Barangay Development Committee (BDC), if a barangay is affected;3.2 The city/municipal DRRMC, if two (2) or mo<strong>re</strong> barangays a<strong>re</strong> affected;3.3 The provincial DRRMC, if two (2) or mo<strong>re</strong> cities/municipalities a<strong>re</strong> affected;3.4 The <strong>re</strong>gional DRRMC, if two (2) or mo<strong>re</strong> provinces a<strong>re</strong> affected;3.5 The NDRRMC, if two (2) or mo<strong>re</strong> <strong>re</strong>gions a<strong>re</strong> affected4. The NDRRMC and intermediary Local DRRMCs shall always act as support to LGUs whichhave the primary <strong>re</strong>sponsibility as first disaster <strong>re</strong>sponders to any incident occurring within theirjurisdictions. For this purpose, the National Council and intermediary local DRRMCs shallcontinue to provide support functions to the affected LGUs to ensu<strong>re</strong> that tactical objectives atthe field level a<strong>re</strong> achieved, and immediate emergency <strong>re</strong>sponse operation is coordinated toassist in the transition from on-scene emergency operations to early <strong>re</strong>covery and <strong>re</strong>habilitationoperations to be undertaken by the <strong>re</strong>gular member agencies / humanitarian assistance clustersof DRRMCs in affected a<strong>re</strong>as.5. An NDRRMC Incident Management Team (NIMT) is constituted to be composed of members ofthe National ICS Cad<strong>re</strong> as defined under this Circular. As such, the NIMT is expected to serveas one of the emergency <strong>re</strong>sponse teams of the National Council to carry out on-scene incidentmanagement functions based on the above criteria or whenever the situation warrants.VII.IMPLEMENTING MECHANISMSThe DRRMCs at all levels shall serve as the mechanisms to ensu<strong>re</strong> the effective implementation ofthis Memorandum Circular. Partner agencies in the ICS Capability Building Program, namely, DILG-BFP and PNP, DOH, DSWD, MMDA, FNTI, PRC, SBMA Fi<strong>re</strong> Department, City Government ofOlongapo, Davao Rescue 911 and Amity Public Safety Academy a<strong>re</strong> enjoined to work closely withOCD, as the Lead Agency, to attain the desi<strong>re</strong>d <strong>re</strong>sults the<strong>re</strong>of.VIII.SEPARABILITY CLAUSEShould any of the provisions he<strong>re</strong>in be decla<strong>re</strong>d invalid or unconstitutional by the appropriateauthority or courts of law, the same shall not affect the other provisions’ validity, unless otherwise sospecified.11

ANNEX “A”A TYPICAL INCIDENT COMMAND SYSTEM (ICS) ORGANIZATIONAnnex “B”13

DRRMC Emergency Operations Center (EOC) – ICS OrganizationInteroperabilityThe above chart describes the <strong>re</strong>lationship between and among the DRRMC Chairperson asResponsible Official (RO), DRRMC Emergency Operations Center and the ICS organization at thescene level.The DRRMC through its Chairperson and likewise the Responsible Official, provides the IncidentCommander his policy di<strong>re</strong>ctions and strategic objectives, the mission and authority to achieve theoverall priorities of the on-scene disaster <strong>re</strong>sponse operations, namely, life safety, incidentstabilization and property/environmental conservation and protection.The DRRMC OpCen, which is generally located away from the disaster site, supports the IncidentCommander by making executive / policy decisions, coordinating interagency <strong>re</strong>lations, mobilizingand tracking <strong>re</strong>sources, collecting, analyzing and disseminating information and continuouslyproviding alert advisories/bulletins and monitoring of the obtaining situation. The EOC does notcommand the on-scene level of the incident.On the other hand, the Incident Commander manages the incident at the scene with the support ofthe <strong>re</strong>levant Command and General Staff depending on the complexity of the situation. The IC alsokeeps the Responsible Official / DRRMC Chairperson and the EOC of all important matterspertaining to the incident.14