CLUSTER I: International Humanitarian Relations Operations Protocol

Transcription

1 CLUSTER I: International Humanitarian Relations Operations Protocol Copy Number: Issuing Agency: National Disaster Risk Reduction and Management Council Place of Issue: Camp General Emilio Aguinaldo, Quezon City Date of Issue: Integrated Plan: National Disaster Response Plan I. RATIONALE The Philippines ranked as the third most disaster-prone country in the world following Vanuatu and Tonga in the World Risk Index. The country regularly faces typhoons, monsoon rains, earthquakes, volcanic eruptions and landslides, to name a few. In 2013 alone, the country was visited by 25 tropical cyclones, higher than the average that regularly visit the country annually. Some of the recent disasters that struck the country were: Typhoon Ondoy a.k.a. Ketsana in 2009; Typhoon Sendong or Washi in 2011; earthquakes in Negros Oriental and Bohol; and what was touted as the most powerful storm that made landfall in history, Super Typhoon Haiyan, which devastated several areas in the Philippines, notably Leyte and Eastern Samar, in November The outpouring of international support was evident after the onslaught of Yolanda. The international community dispatched large volumes of assistance in the form of goods, money and personnel. According to the Philippine Government's Foreign Aid Transparency Hub (FAiTH) website, the Philippines received close to Php15 billion or approximately 44 percent of the Php34 billion cash and in-kind total foreign aid pledged by foreign donors. The Philippines' National Disaster Risk Reduction and Management Council (NDRRMC) activated a 24-hour One-Stop-Shop (OSS) in the Bureau of Customs (BoC) offices in the Ninoy Aquino International Airport (NAIA) and Mactan-Cebu Airport to facilitate the entry of relief goods from abroad. The OSS comprised of representatives from the Department of Justice' Bureau of Immigration (DOJ-BI), Office of Civil Defense (OCD), Department of Social Welfare and Development (DSWD), Department of Health (DOH), Department of Foreign Affairs (DFA) and the Department of Transportation and Communication (DOTC). Despite the OSS, however, the NDRRMC noted the following concerns in the flow of humanitarian assistance to the country: Need to review Trigger and Surge Need to rapidly communicate PHL aid needs Many international donors sent aid without prior notification with the Philippine Government causing further delays in entry and processing. Some aid was unnecessary and prohibited (used clothing). Others did not have proper documentation, e.g., no proper consignee designation. The entry of donations through international air and seaports must conform to regulations. Cluster I-1

2 National Disaster Response Plan for Earthquake and Tsunami Disaster The One Stop Shop is limited to addressing entry of goods and not their distribution. Regional DRRMCs, LGUs and the private sector need to coordinate to address the distribution of donated goods. The Armed Forces of the Philippines noted that some disaster-affected areas in need of humanitarian assistance did not receive any help as most humanitarian aid was focused on particular areas. Some international groups slipped in the country without prior notification with local authorities. NDRRMC's logistics arm further could not secure these groups' safety or transport to affected areas due to this lack of coordination. Support to foreign aid providers not always available Sometimes questionable motives of aid providers Inter-foreign, foreign-national, gov-ngo, civ-mil, mil-mil, intl-natl-local etc. coordination a challenge. The IHR will install a system of coordinating all international humanitarian assistance and direct the assistance to the respective Philippine Cluster. The coordination will cover all assistance in forms of goods or personnel of foreign origin. This does not include resources already within the country but are from international organizations, agencies, offices. ONLY when the assistance coming from international organizations, agencies, offices will entail importation from outside of the country will this be accepted, approved and cleared by the IHR. The IHR will also work on requirements pursuing international relations through the participation in international and regional conferences, fora and other venues for DRRM advocacy and implementation. II. OBJECTIVE A. Establish an organized and systematic management structure for all international humanitarian assistance to the Philippines, e.g., accommodation of search and rescue and disaster relief teams, among others. B. Establish a seamless coordination system between key players involved in international humanitarian assistance during disaster response operations. C. Enhance PHL capacities to reduce dependence / reliance on international humanitarian aid providers. III. CONCEPT OF OPERATIONS The IHR Cluster will coordinate all assistance coming from all personalities, organizations, and nations. The IHR Cluster will be activated upon the declaration of the Call for international assistance. The following are the functions that will be pursued by the Cluster to support the response operations of the national government through the NDRRMC and particularly the Response Clusters for earthquake and tsunami disasters. Cluster I-2

3 A. Pre-Disaster Phase: 1. Information on ongoing relief, rehabilitation and recovery efforts disseminated by the Department of Foreign Affairs through its embassies, permanent missions, consulates general and attached agencies. Information to include existing methods for donations, e.g., through NDRRMC, DSWD and the Philippine Red Cross. Other useful information that can be considered include the Bureau of Customs Guidelines and Procedures on Customs Clearance of International Donations Availing of Duty and/or Tax Exemptions during Calamities published on 5 August The National Council will also coordinate or oversee the implementation of the country s obligations with disaster management treaties to which it is a party such as the ASEAN Agreement on Disaster Management and Emergency Response (AADMER), which came into force in December 2009, and see to it that the country s disaster management treaty obligations be incorporated in its disaster risk reduction and management frameworks, policies, plans, programs and projects. 3. NDRRMC / DFA to coordinate PHL in DRRM agreements, meetings, frameworks: UN, Red Cross, ASEAN, (esp. AADMER) 4. DFA to ensure close coordination with UN (ie OCHA), ASEAN (ie AHA Center), RC, EU, Bilateral (Civilian & Military), NGO and other humanitarian assistance partners before / after disaster DFA coordinates with the Department of National Defense, NDRRMC and the AFP in facilitating the entry of foreign humanitarian teams, whether civil or military, to the Philippines in the event of a disaster. 5. DFA to inform UN (ie OCHA), ASEAN (ie AHA Center), RC, EU, Bilateral (Civilian & Military),, NGO of the possible humanitarian assistance the Philippine Government will be requesting once the President issues a call as recommended by the NDRRMC Chairman. The possible humanitarian assistance will be in a form of lists of requests that are prepared and submitted by the Philippine Response Clusters for initial consideration. For example, the Departments of Social Welfare and Development and Health recommends to gather a stockpile of shelter kits, portable tents, hygiene kits, blankets and mats, water containers prior to any disasters. The list will be finalized by each Cluster member, approved by the NDRRMC and submitted to the Department of Foreign Affairs for onward transmittal and guidance to its Foreign Service Posts abroad which can liaise with their Host Governments for advance information and assistance. NOTE: list include information on the following: Requirements for duty-free entry of donated goods The skills and scope of work of the personnel/manpower the Response Cluster will need The Terms of Reference of the personnel including the sustainability requirement The groups to enter the country should be pre-registered or endorsed by their respective country and must bear a document of endorsement. Cluster I-3

4 National Disaster Response Plan for Earthquake and Tsunami Disaster 6. The IHR will identify potential areas for the installation of OSS as entry points to facilitate the reception of international humanitarian assistance. This information will be provided to all UN (i.e., OCHA), ASEAN (i.e., AHA Center), RC, EU, Bilateral (Civilian & Military), NGO. B. During Disaster Phase: 1. The IHR/OSS will deploy all OSS Team to pre-identified areas to commence the reception of international assistance. 2. The IHR/OSS Team will compose of representatives of the Response Cluster, the BOC, BI, DFA. 3. The DFA will provide information on the form of assistance that will be coming in the country through their diplomatic network to the IHR/OSS. 4. Each Response Cluster will provide personnel/representatives in the IHR/OSS that will process the clearance (STEP 2) of incoming humanitarian assistance after the IHR/OSS have given acceptance and approval (STEP 1). The guideline for the both STEPs 1 and 2 are in ANNEX _ and _ (will be provided by DFA). 5. Upon issuance of Clearance of the Response Cluster Representative, the humanitarian assistance will proceed to the Response Cluster hub for proper briefing and deployment. 6. For groups that will not pass through the network of the DFA, these groups will undergo a process of acceptance and approval at the nearest OSS/IHR station. All Immigration Officers will inform them of the steps to take prior to proceeding to the affected areas. Trigger Team Trigger Team to be immediately activated, consisting of officers from OSECs of DND and DFA, supported by USEC OCD and ASSEC UNIO to stand by to execute needed actions to trigger international support as needed (i.e., sending of acceptance letter to UN, etc). C. Post Disaster Phase: 1. The OSS/IHR will continue the processing of incoming goods, equipment and people that will provide humanitarian assistance to affected areas until the NDRRMC declares the Response Operation over and the Recovery and Rehabilitation operations will commence. 2. The DFA will inform UN (ie OCHA), ASEAN (ie AHA Center), RC, EU, Bilateral (Civ& Mil), NGO the end of Response Operations and the start of the Recovery and Rehabilitation operations. A different set of guidelines will be provided to the incoming humanitarian assistance. Section 14 Mechanism for International Humanitarian Assistance Upon the recommendation of the Chairman of the NDRRMC and depending on the scope, magnitude of damage or implications of the adverse effects of the disaster, which will serve as trigger points, the President of the Philippines may issue a call for international assistance. Cluster I-4

5 As party to the ASEAN Agreement on Disaster Management and Emergency Response (AADMER), the request for assistance may be sent directly to other ASEAN Members States or through the ASEAN Humanitarian Assistance (AHA) Center in Jakarta, Indonesia. For purposes of ensuring a concerted effort abroad, the Department of Foreign Affairs, through the embassies or consulates of the Philippines, may facilitate the call for international assistance and closely coordinate with the NDRRMC for this purpose. 3. The IHR cluster will serve to validate any recommendations to call for humanitarian assistance that may be put forward by the Executive Director of the Office of Civil Defense after the NDRRMC conducts its rapid assessments on the damage inflicted on the locality. 4. The International Humanitarian Relations cluster will help identify areas which require priority assistance upon the recommendation of the NDRRMC Operations Center, presuming that teams have conducted the necessary Rapid Disaster and Needs Assessment (RDANA) to determine which affected areas to prioritize to receive humanitarian assistance. 5. All humanitarian organizations will coordinate with the IHR cluster for details of the deployment of assistance for affected LGUs. A. Lead Cluster Agency: 1. Department of Foreign Affairs (DFA): a) In addition to enhancing relations with international organizations and foreign governments, Philippine Embassies and Consulates must engage foreign Search, Rescue and Retrieval (SRR) and Foreign Medical Teams (FMT), whether civilian or military, and other potential humanitarian aid providers to establish cooperation with Philippine counterparts prior to disasters. b) Responsible for conveying the humanitarian and relief needs identified by the line agencies/other response cluster to the international community; c) Coordinate requests for and offers of logistics and transportation assistance from foreign governments in accordance with the NDRRMC; d) Assist in the processing of resources coming from other countries such as temporary shelter and camp materials for Camp Coordination and Management (CCCM) and equipment to enhance ICT capacities (ECT); e) Provide assistance in the processing of incoming Search, Rescue and Retrieval (SRR) Teams from the regional and international community; f) Provide information on foreign nationals who have perished in disasters in the Philippines to their respective embassies and consulates in the Philippines; g) Provide assistance in the processing of incoming Health Emergency Teams from the regional and international community; Cluster I-5

6 National Disaster Response Plan for Earthquake and Tsunami Disaster h) Coordinate issuance of entry/exit clearances for foreign state aircraft (s) and vessel(s) used for the transport of foreign experts or consultants; i) Facilitate and negotiate cooperation agreements with foreign countries concerning deployment of experts in the event of natural disasters or major emergencies; j) Co-Organization of pre- and post- Philippine Delegation briefings / coordination meetings for Philippine Delegations participating in international DRRM meetings must be as made as a standard operation procedure. k) Designate a focal point to assist in facilitating the entry and exits of international search and rescue and other relief teams. B. Cluster Member Agencies: 1. National Disaster Risk Reduction and Management Council (NDRRMC) a) Serve as the information and coordination hub between and among donors, consignees and recipients of foreign and local donations. All communications will be addressed to the Executive Director of the NDRRMC through the Chief of the NDRRMC Operations Center. b) The Philippines' National Disaster Risk Reduction and Management Council (NDRRMC) can activate 24-hour One-Stop-Shops (OSS) in the offices of the Bureau of Customs (BoC) in the Ninoy Aquino International Airport (NAIA) and the port nearest the calamity area in line with the Declaration of State of Calamity by the President of the Philippines upon recommendation of the said Council. Members of the OSS will expedite the documentation and processing of imported donations which can include but may not be limited to customs and flight clearances; and c) The OSS comprises of representatives from the Department of Justice's Bureau of Immigration (DOJ-BI), Office of Civil Defense (OCD), Department of Social Welfare and Development (DSWD), Department of Health (DOH), Department of Finance (DOF), Bureau of Customs,(BOC), Food and Drug Administration (FDA) Department of Foreign Affairs (DFA) and the Department of Transportation and Communication (DOTC). 2. Department of Finance (DOF) a) Coordinate with the Department of Foreign Affairs for the International Humanitarian Assistance Donated Shipments especially concerns to the last paragraph of the Section 105 Conditionally-Free Importations of the Tariff and Customs Code of the Philippines(TCCP) stated as The provisions of general and special laws, including those granting franchises, to the contrary notwithstanding, there shall be no exemptions whatsoever from the payment of customs duties except those provided for in this code; those granted to government agencies, instrumentalities or government-owned or controlled corporations with existing contracts, commitments, agreements, or obligations (requiring such exemption) with foreign countries; international institutions, Cluster I-6

7 associations or organizations entitled to exemption pursuant to agreements or special laws; and those that may be granted by the President upon prior recommendation of the National Economic and Development Authority in the interest of national economic development. b) Approve Sec.105. Conditionally Free Importations of the TCCP specifically Sec. 105k, l and last paragraph of the said section. 3. Bureau of Customs (BoC) a) Designate an overall point person in order to assists and provides for the proper guidelines for foreign donations shipments. b) Have active participation in any OSS Facility created temporarily by the NDRRMC within the period of the declared national state of calamity, wherein the BOC Commissioner shall immediately designate his authorized representative/s thereto as soon as activation of OSS starts. c) Coordinate immediately with other government agencies concerned for the expeditious processing of necessary clearances and endorsements d) Facilitate and expedite processing and releasing of foreign donations shipments intended for delivery and distribution to calamity- declared areas. Note: The BOC posted on their website the Guidelines and Procedures on Customs Clearance of International Donations availing of duty and/or Tax Exemption during calamities. e) Provide special lane for the incoming Duly Accredited International Experts and Personnel to provide humanitarian assistance (International Medical Teams, Search, Rescue and Retrieval (SRR) Teams and other Specialist teams in their field of expertise) in NAIA and the port nearest the calamity area to be manned by BOC, BI and DOH. f) Submission of reports on the foreign donations shipments to DOF, OCD and COA. 4. Office of Civil Defense (OCD) a) Create an enabling environment for government and non-government humanitarian actors, including civil and military, to response in times of disasters; b) Coordinate with the Clusters for the conduct of RDANA as basis of the call for international assistance, if the situation warrants; a) Provide office space and basic requirement for operations coordination with the international community at the NDRRMC; b) Secure in advance the names and other personal data of team members and capacity of humanitarian teams and create a database together with the list/specifications of possible equipment/supplies that their teams may bring, and coordinate with the Bureaus of Immigration and Customs to facilitate clearance upon their arrival at any international airport; Cluster I-7

8 National Disaster Response Plan for Earthquake and Tsunami Disaster c) Accredit the foreign disaster relief teams and provide them with their identification cards that will facilitate entry into the country for humanitarian reasons; d) Coordinate the provision of appropriate mobility assets or the international search and rescue/disaster relief teams to reach the site of the emergency. e) As head of the Logistics Cluster, institute a tracking system in coordination with concerned agencies of all humanitarian assistance, including international donations for equipment and coordination;. f) Facilitate the exchange of supply-chain information between donors, the UN, international organizations, NGOs and the commercial sector. g) Coordinate the establishment of a One-Stop-Shop (OSS) to be led by the Department of Finance-Bureau of Customs. 5. Department of Justice's Bureau of Immigration (DOJ-BI) a) Facilitate the entry of duly accredited international experts and personnel to provide humanitarian assistance in disaster-stricken areas, subject to existing immigration rules and regulations and provided that these persons are given distinctive identification while performing official duties and are not included in the Philippine Bureau of Immigration Watchlist/Blacklist; b) Designate specific areas for Immigration Officers at international airports to allow the immediate entry of specialist teams provided that the relief operations in case of emergency or disaster must be under the control and supervision of their team leaders/respective embassies. c) Validate identification cards of international support teams as against the advance list of members submitted to DND-OCD; d) Prior notice and advice on the arrival of the aircraft/sea craft, specifications, name and composition of the relief team and capacity must be provided to BI in advance as this will guide the Bureau to comply with the inspection and waiver requirements in an expeditious manner. 6. Armed Forces of the Philippines (AFP) a) The Armed Forces of the Philippines convenes the Multi-National Coordinating Center (MNCC) during times of disasters and oversees all offers of military assistance from foreign governments. Foreign Governments may contact the MNCC through the Philippine Defense Attaches assigned in the Philippine Embassies abroad or through their foreign embassies in the Philippines; b) The MNCC will take the lead in deploying all forms of foreign military assistance in the Philippines after consultations with the NDRRMC and including but not limited to military officers with medical backgrounds, communications and radio equipment teams, K9 teams, search and rescue and retrieval teams; c) Assign military medical officers in the One-Stop-Shop (OSS) points in the Philippines to coordinate closely with the Department of Health (DOH); Vice versa, the DOH will also assign medical personnel in military bases that serve as entry points for foreign humanitarian assistance; Cluster I-8

9 d) Regulate and monitor foreign vessels used in distributing relief goods of the Department of Social Welfare and Development (DSWD). 7. Department of Health (DOH) a) Supply the DFA with the DOH Package List of Medical Goods prior to any disasters; b) Coordinate with military personnel with medical backgrounds from the AFP in the One-Stop-Shop (OSS); c) Facilitate the entry of Foreign Medical Teams (FMTs), supplies and equipment into the Philippines, including coordination with the Professional Regulatory Commission (PRC) that regulates and oversees all medical practitioners in the Philippines; d) Assign teams to disaster-affected areas as Health Cluster Lead agency; e) Issue guidelines on the conduct of foreign medical teams in the country, including accreditation or credentializing, i.e securing credentials of FMTs, registration and constant reporting of activities; f) Serve as member of the OSS. 8. Philippine Institute for Volcanology and Seismology (PHIVOLCS) a) The PHIVOLCS Quick Response Team (QRT) identifies good practices and areas for improvement of the agency as well as of the other cluster agencies. 9. Department of Transportation and Communication (DOTC): a) Facilitate or cause the facilitation of the entrance and clearance of relief teams and their equipment/supplies needed in the course of their mission through the Air Transportation Office (ATO), Manila International Airport Authority (MIAA), Mactan Cebu International Airport Authority (MCIAA) and other international airports in the country; and b) Facilitate the transport of the relief teams and their supplies/equipment from the airport of entry to the disaster or emergency site through all the transport agencies under the DOTC, in coordination with the Office of Civil Defense. c) Regulate the entry and clearance of foreign aircraft and vessels of relief teams, including their equipment/supplies needed in the course of their mission through the Civil Aviation Administration of the Philippines (CAAP), Manila International Airport Authority (MIAA), Philippine Ports Authority (PPA), Cebu Ports Authority, Mactan Cebu International Airport Authority (MCIAA), Clark International Airport Authority and other international ports and airport authorities in the country in coordination with the Bureau of Customs, Immigration and Quarantine agencies. Cluster I-9

10 National Disaster Response Plan for Earthquake and Tsunami Disaster 10. Department of Social Welfare and Development (DSWD) a) Coordinate with the DFA, NDRRMC and the DND-AFP when liaising for humanitarian assistance from in-country donor agencies as well as donor governments or institutions; b) Serve as member of the OSS; c) Coordinate with internal and external donor agencies and assess their assistance capabilities; d) Facilitate the release of donations from international donors, including logistical issues such as securing bills of lading, etc; e) Identify disaster-affected areas in need of donations, allocate resources including donations, for distribution as well as report the distribution of donations. 11. National Youth Commission a) Involve and coordinate with youth groups. IV. CONCEPT OF SUSTAINMENT A. The DFA as Cluster Lead will coordinate all movement of incoming products, personnel and equipment from the point of embankment prior to turnover to the Response Clusters activated for any disaster. B. Concerned government agencies and their subordinate offices shall utilize their respective internal personnel. Additional personnel requirements shall be coordinated through the NDRRMC in collaboration with all Council members. V. COMMAND AND CONTROL A. Command Relationship all DRRM actors and key players will refer and based their actions as prescribed in IRR of R.A. 1021, Rule 3, Section 2. Composition B. Command Center National Disaster Risk Reduction and Management Operations Center (NDRRMOC), Camp General Emilio Aguinaldo, Quezon City. a. Succession of Command: a. Chairperson, NDRRMC (S, DND) b. Vice-Chairperson for Disaster Response (S, DSWD) c. IHR Cluster Lead (DFA) d. IHR Cluster Members b. Interagency Communication System Support For the entire duration of the operations, the existing means of communications shall be utilized whatever is applicable. However, the Cluster I-10

11 Emergency Telecommunication Cluster will be activated once communication is cut-off from the affected areas. FOR GUIDANCE AND STRICT COMPLIANCE SEC VOLTAIRE GAZMIN CHAIRPERSON, NDRRMC Department of National Defense Cluster I-11