Emergency Response at NBP, An Assessment

7/28/2019 Emergency Response at NBP, An Assessment

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EMERGENCY RESPONSE AT THE NEW BILIBID PRISON:

AN ASSESSMENT

I. INTRODUCTION

The security industry and the government share the

responsibility of protecting lives and property.

Anticipatory Management or preparedness helps to avoid loss

of lives and properties, and assures continuity of

operation which is important to the recovery of the

facility after the disaster or emergency crisis.

Every industrial facility should be equipped to cope

with the hazards and disasters of todays complex world.

Storms, fires, explosions, sabotage, civil disturbances,

and other disasters pose visible and anticipated threats.

The same goes with the government institution, specifically

the prisons.

In prison facilities, the challenge of disasters is

quite different and more ominous than that of the business

industry. Riots, mass escapes, and threats of attacks from

the leftist, rightist, and terrorist are the expected daily

occurrence and that must be competently managed. These

risks and challenges are more prevalent and should be

addressed with proper planning and execution of emergency

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response/preparedness or vigilance so that the recluse of

the society will be effectively confined.

Coordinated planning with local and national civil

preparedness council guarantees provisions for the fullest

utilization of available resources. Also, the mutual

assistance agreements with other government institutions

assure help in cases of emergencies.

Both of these are keys to prison community

preparedness. It helps to ensure continuity of operations

and limits interruption of the prison system. In addition

to these, plans should be well circulated so everyone is

aware and is expected to execute it as planned anytime.

Every facility, whether government or private firms

regardless of size, should establish an internal

organization that will be able to protect lives and

property in time of any adversity and emergency. Emergency

preparedness is regarded as the backbone for survival and

recovery. Hence, recovery planning is very essential and

also mandatory to secure the safety and security of the

institutions personnel and property so as to continue its

function and to carry out its primary mission. The prison

institution is not exempted from it; rather it would

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require more specific, detailed and defined strategies

since it caters to a very high-risk group of individuals.

This paper will present the assessment of the

Emergency Response at NBP. Specifically it will appraise

the following: first, the existence of viable written

emergency preparedness plan in case of riots and other

prison disturbances; second, the responsiveness of the

written emergency preparedness plan; and third, the

readiness of the NBP to execute it in when emergency

situations arises.

But prior to the assessment of the NBP Emergency

Response, it is important to discuss first the emergency

planning. This is to better understand its essentials,

features, types and elements as it is applied to NBP.

II. EMERGENCY PLANNING

Emergency planning is, first and foremost, the plan

which includes the detailed set of policies and procedures

to any reasonably foreseeable emergency or disaster that

would affect the safety of people and assets of the

organization. The plan should be in written form, and it

should stipulate in detailed manner the steps to be taken

and should identify who the lead persons responsible to

execute the plan in a given emergency. Note that there are

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two key elements in any contingency plan: first, what is to

be done; and second, who is to do it.

Having a detailed plan of action ensures that the

right people, equipment and facilities are available in any

crisis, and that everyone both the management and employees

will know what to do, what to expect, and who is/are in

charge. This crisis response must be swift and sure.

Confusion and panic are all too common and must be avoided.

If the twin objectives of preventing or minimizing injury

or accident to people, and preventing or minimizing loss of

assets are to be achieved in an emergency, the key people

in the organization must be able to act quickly and

responsibly.

Advance planning has other advantages. It makes it

possible to enlist those who will be involved in the crisis

situation. Since all facets of the organization will,

typically be affected, all should have some input in the

planning. The committee approach, in fact, is most commonly

used in developing emergency plans. This collaborative and

cooperative effort enables the organization to anticipate

and identify problems in different areas and to respond and

be prepared to act on them accordingly.

Types of Emergencies

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While it is impossible to predict all emergencies that

might occur, it is possible to make reasonable estimates of

the vulnerabilities of a given facility in a particular

geographical location. In the past decade, the most common

emergencies have been fire, calamity, bomb threat, and

labor dispute, of which most organizations have specific

contingency plans for these man-made and natural hazards,

and these have already been discussed. Other threats may be

relatively predictable for a given site, such as the

possibility of explosion, a spill or a chemical leak in a

chemical plant. In developing emergency and disaster plans,

priority should naturally be given to those areas of most

immediate concern.

The types of emergencies that require emergency plans

include: airplane crash; bomb and bomb threat; building

collapse; civil disturbance; earthquake; fire; flood; riot;

sabotage; strikes and pickets; utility failure; and storm.

While game plan should exist for each emergency, a

possible standard procedure should be adopted, since there

are many common elements in the emergency response to any

crisis. Whenever possible, the same chain of command should

exist, the same communications, the same command post and

control center, and the same first aid center. Evacuation

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routes should be identical for a bomb threat or fire. An

important rule in all such planning is to keep it simple.

Employing common elements in all plan helps to eliminate

confusion and uncertainty during the frantic first moments

of disaster.

Emergency Personnel and Equipment Records

It is already stated that emergency plan should be in

writing, preferably in an emergency planning manual, and

copies of which should be immediately available to

designated members of management, the emergency team,

security, finance, and other key employees with its

specific responsibilities. Plans should be reviewed

periodically and kept updated.

Permanent records must be kept in a secure location

(such as the security office), and should include the

following: (1) names and phone numbers of management

personnel to be notified; (2) names of emergency forces as

to assignments, location, and phone numbers; (3) names of

back-up emergency forces; (4) list of emergency equipment

and supplies, including type, location, quantity, back-up,

and outside support; (5) building plans; (6) mutual aid

agreement; (7) Outside organizations (police, fire,

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hospital, and ambulance) with their locations and phone

numbers; and emergency planning.

Security Responsibilities

While it is impossible to stipulate the duties

involved by the security people in an emergency, it is

suffice to mention that this is expanded from the normal

expected functions. It is all about the smooth

coordination, involvement and anticipatory management that

lead to the protection of lives and properties. The

security duties are expanded from the normal expected

responsibilities and it includes:

Establish communication with police

Activate emergency steps to protect people,

property, & valuable information

Mobilize an emergency guard force

Control Movement of personnel & others

Control entrances and exits

Control classified and dangerous areas

Control evacuation as ordered

May diversify as in fire fighting, first

aid, etc

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Thus, emergency and disaster planning is a total

management responsibility where the security department

will always play an active, vital and prominent role.

III. THE NEW BILIBID PRISON

The New Bilibid Prison is one of the seven penal

institutions under the Bureau of Corrections---a line

agency under the Department of Justice. The construction of

New Bilibid Prison started in 1936. It was established by

virtue of Commonwealth Act No. 67 and officially became

operational on November 15, 1940. It was officially named

as the New Bilibid Prison on January 22, 1941, basically to

differentiate it from the Bilibid Prison in Manila which

later called as the Old Bilibid Prison.

The prison reservation has had an original land area

of 587 hectares, part of which was arable. Today after

series of proclamations, it was trimmed down to only 237-

hectares. The prison compound proper then, an area of 300

x 300 meters or a total of nine hectares with a total

capacity of 3,000 prisoners, is what known today as the

Maximum Security Compound.

Today, various facilities were constructed to

accommodate the fast growing numbers of national prisoners.

There are three prison camps, which house inmates according

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to security classifications, the maximum, medium and

minimum security prisoners. There is a separate facility

for newly convicted inmates, juveniles, and inmates soon to

be released. These are the Reception and Diagnostic Center,

the Muntinlupa Juvenile Training Center, and the Halfway

House, respectively. (Vinarao: BuCor Centennial Book, 1905

to 2005)

As of June 31, 2005, the NBP has maintained 18,327

inmates complemented by 641 prison guards or guard to

inmates ratio of 1:29. (Management Division: BuCor

Accomplishment Report, January to June 2005)

Peaceful atmosphere has generally prevailed inside the

prison compounds. This can be attributed to the restoration

of conjugal visits, and the intensive campaign against

illegal drugs and other contrabands and the strict

implementation of safety and security procedures.

As of June 2005, a total of 36 escape incidents

occurred. Majority of these escapes were minimum security

inmates working in an open wall within the prison

reservation.

It is worthy to mention that in the past three

decades, there has never been any emergency case that has

not been curbed to its controllable level. Perhaps this is

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possible because of existing emergency plan and contingency

planning being stressed in the daily operations.

The succeeding topics will focus on these aspects of

security planning adopted at NBP in case of riots and

prison disturbances.

IV. NBP EMERGENCY RESPONSE PROCEDURES

The basis of the NBP emergency response is embodied in

the Bureau of Corrections Operation Manual specifically in

Part IV Section 1 to 9 which explicitly identifies the

component of emergency planning, the control center, the

coordinator, the expected action to be taken and the lead

person/s. Included also are the procedures to be taken in

cases of jailbreaks, fire and other disturbances. The full

texts of which are presented below:

PART IV. SECURITY PROCEDURES DURINGEMERGENCIES, RIOTS,

ESCAPES OR MAJOR DISTURBANCES

SECTION 1. Emergency controlcenter. A prison shall establish a Control Centerto control, execute and monitor the proper andtimely implementation of detailed plans of action to

cope with the emergency situations caused by firesor conflagrations, riots or other violentdisturbances, or escapes. The Control Center shallbe under the command of the Superintendent or, inhis absence, the Assistant Superintendent, and inthe latters absence, the most senior prison guardpresent.

SEC. 2. Riots and other prisondisturbances. In the event of riots or other

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prison disturbances, all officials and employees ofthe prison were the incident occurs shall be placedon twenty-four-(24)-hour alert to perform such

tasks as may be necessary to quell the disorder ornormalize the situation.

SEC. 3. Sounding of alarm. Whenever a riot or escape alarm is sounded, eitherby siren, bell or gun fire, all inmates shall beordered to lie flat on the ground, face down andwith arm and legs spread out. On such occasions,when warnings are disregarded, the guards shalluse reasonable force to carry out the instructions.

SEC. 4. Procedure during riots anddisturbances. The following procedures shall befollowed in the case of riots and other violent

disturbances:a. At the sound of the first alarm, allinmates shall be locked up inside theirrespective cells/quarters. An inmate workcrew shall be immediately returned to theprison compound or to previously designatedareas for accounting and confinement afterhead count.b. If the disturbance occurs duringvisiting hours, all visitors shall beimmediately ushered out of prison compoundor if this is not possible, brought to a pre-

determined area inside said compound. Inthe latter case, the visitors shall not beallowed to leave said area or the compounduntil the disturbance has ceased and theinmate have been properly accounted for.c. At the same time, all guards who arenot on duty shall be directed to immediatelyreport to the Desk Officer. All critical postsshall be manned to prevent escapes. Themost senior guard present shall takecommand of the custodial force and makeassessment of the situation.

d. All telephone calls to and from theprison compound shall be controlled.e. The Armorer shall issue the necessaryanti-riot equipment and firearms.f. Based on his assessment of theprevailing conditions, the guard in commandshall deploy the guards into the followinggroups:

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1st Group This is the initial wave ofanti-riot assault contingent who shall bearmed with wicker shields, protective

headgear, gas masks and night sticks orbatons, when these are available. Theobjectives of this group are to dispense therioters and get their leaders.

2nd Group This is the back-up forceof the 1st Group who shall be equipped withtear gas guns and gas grenades.

3rd Group This is composed ofguards who are trained in the properhandling and use of firearms. Under thedirect command of the guard-in-charge, theyshall provide covering fire to the first two

groups.g. When the three groups mentionedabove are ready, the guard-in-charge shalldirect the inmate to cease and desist, toreturn to their respective cells and warnthem of the consequences if they do notobey. The known leaders, if known, shall beaddressed directly.h. If the inmates fail or refuse to heedthe order to return to their cells, the guard-in-charge shall sound the second alarm.

Thereupon the 1st Group shall enter into the

prison compound followed by the 2nd Groupat a discreet distance. The third group shallbe in strategic position, ready to fire if thelives of the guards in the 1st and 2nd Groupsare endangered by overt violent acts of theinmates.i. The 1st Group shall be task withquelling the riot and getting the leaders ofthe rioting group. If they meet stiffresistance, the head of the Group shallimmediately order their withdrawal.

j. Thereafter the guard-in-charge shall

order the 2nd Group to fire tear gas on theinmates. When the area where the riotersare found saturated with gas, the 1st Groupshall attack using batons to force the rioterinto their cells and to get the leaders. Theuse of pressurized water from the fire truck,if any, may be resorted to.

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k. At the earliest opportunity, the guard-in-charge shall report the prison disturbanceto the nearest police station and to the

Director who shall in turn inform theSecretary.l. When the condition has becomecritical and the disturbance has reached fullintensity, the guard-in-charge shall cause thesounding of the third alarm. At this instance,the Control Center shall notify all Policeagencies nearby for assistance and them allother plans in connection with prisonuprising shall then be executed. Nearbyhospital shall also be notified if the situationdemands.

m. As an extreme measure to preventmass jailbreak or serious assault upon themembers of the prison administration, theselected marksman of the 3rd Group may beobserved by the guard-in-charge to firewarning shots at the rioters. If the rioters donot desist, the order to fire shall be given butonly to maim designated targets belongingto the rioting group.n. After the riot or disturbance, thefollowing procedures shall be followed:

i. Administer first aid to the

injured;ii. Conduct a head count;iii. Segregate ring leaders and

agitators;iv. Assess and determine thedamage to the facilities;v. Investigate the causes of theriot and prosecute the ringleadersand other persons involved in the riot;vi. Repair the damage;vii. Adopt measures to prevent

repetition of similar incidents;

andviii. Submit a report on the incidentto the Secretary.

SEC. 5. Procedure during an escapeor jailbreak. The following procedures shall befollowing in the case of escapes or jail breaks:

a. When a jail break is in progress or hasjust occurred, the Control Center shall

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immediately sound the alarm and theSuperintendent or the Commander of theGuards shall be notified.

b. At the first sound of the alarm, allinmates shall be locked in their respectivecells while those in work detail shall bemarched in orderly manner to their cells.c. All prison personnel who are not onduty shall report to the prison immediatelyand make themselves available foremergency deployment. The Armorer shallissue firearms to members of the custodialforce who shall be immediately dispatched tostrategic posts.d. A head count shall be made

simultaneously in the different cells/quarterof inmates to determine the identity of theescapee. Prison personnel assigned toessential posts such as the powerhouse,kitchen, hospitals, fire stations, etc. shall alsomake a headcount of the inmates under theirsupervision and report the results thereof tothe Control Center.e. If the identity of the escapee isestablished, his name and other personalcircumstances shall be immediately flashedto all units of the Philippine National Police in

the vicinity.f. Radio and television station and othernews media shall also be notified of theescape and, if possible, provided withphotographs of the escapee.g. A recovery team shall be formed bythe Superintendent to proceed to all knownlairs, hangouts, residence and houses ofimmediate relatives and friends of theescape.h. In case of mass jail breaks, allmembers of the custodial force shall be

immediately issued firearms and assigned tocritical posts to seal of all possible escaperoutes while teams search the prisonpremises. Prison personnel who are off-dutyshall be required to report for dutyimmediately.i. If any prison officer or employee heldhostage by escapee, reasonable caution to

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insure safety shall be taken. If it is theSuperintendent who is taken hostage, theAssistant Superintendent shall assume

command.j. If no hostage was taken and theescapes is unable to leave the prisonpremises but refuses to surrender to theprison authorities, the basic plan for Riots orDisturbance shall be implemented.k. After the escape, the superintendentshall conduct and investigation relative tothe escape to determine the liability of theofficer/employee under whose custody theinmate escaped. A review of securityprocedures and an ocular inspection of the

prison facilities shall also be made todetermine the existence of any gaps orflaws. A report on the results of said reviewshall be submitted to the Secretary.SEC. 6. Emergency plans for

calamities, etc. Subject to the available andfunding resources, a prison shall establishemergency plans in cases of power failure andnatural disasters such as floods, earthquakes, andother calamities. The plan shall cover the specificroles of prison personnel present, the alarm systemto be used, the emergency power units to be

utilized and the kind of security to be provided andsuch other matters as are necessary to insure thesafety and security of prison personnel andinmates. Likewise, the plans shall also includedetailed procedures for evacuation of inmates incases of floods, earthquakes and other calamities,if such evacuation is necessary.

SEC. 7. Features of emergencyplans. Subject to the availability of funds andequipment, emergency plans shall contain thefollowing basic elements or features:

a. Fire

i. A fire crew shall be formedconsisting of prison personnel andinmates chosen according to theirsecurity classification/behavior,intelligence and aptitude. They shallman the prison fire truck, if any.ii. The inmates who are selectedshall be housed separately from the

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other inmates in close proximity to theControl Center and/or the fireequipment and fire truck, if any. They

may be issued special uniforms foreasy identification.iii. At the first sign of fire, theControl Center shall sound an alarmeither by means of siren or a bell, or atthe same time, notify the firedepartment, police headquarters andother units that may help in puttingout the fire and/or evacuatinginmates.iv. The person in-charge of thekeys to the storage for fire- fighting

equipment, the emergency gates andgates of the different cells/brigades,should distribute the keys to theresponsible personnel concerned.v. The fire crew shall immediatelyrespond to the scene to put out thefire while the other prison personnelshall station themselves according tothe plan.vi. All inmates in the affected areashall be required to help in putting outthe fire.

vii. If there is a need to evacuategovernment records, supplies andequipment, they should be evacuatedto a safe place according to priorityand placed under proper guard.viii. If there is a need to evacuatethe inmates, they shall be evacuatedin an orderly manner, using securemotor vehicles, if any or by any othermeans that will bring them to pre-arranged building or detention centersfor their confinement. If the inmates

are evacuated outside the prison, theyshall be secured by handcuffs or otherinstruments of restraint.ix. When the all clear alarm issounded, first aid shall beadministered to the injured inmatesand a physical count of inmates shallbe made. Security check of the prison

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to determine the extent of thedamage shall also be done.

x. If the security conditions allow,

the evacuated inmates shall bereturned to the prison. Otherwise, theyshall be retained in the detentionplace where they were evacuated ortransferred to another penalestablishment as the Director maydecide.

xi. A thorough investigation of thecauses of the fire shall be conductedby the Superintendent and the reportthereon submitted to the Director andthe local Fire Department.

SEC. 8. Fire prevention. To preventthe occurrence of fire and to minimize its effects ifsuch has occurred, the following rules shall befollowed:

a. Inmates shall be cautioned against thehazards caused by careless handling of litcigarettes, inflammable materials, fuel,welding equipment, etc.b. Fire extinguisher shall be placed inclose proximity to all housing units andlocated in strategic places in buildings, andwork areas.

c. Empty drums and cans shall be filledwith water/sand and placed in strategicplaces for ready use.d. Keys to emergency exits, cells,brigades and storage places of fire-fightingequipment shall have distinct markings ortags, marked and shall be accessible to theguard on duty.e. Portable floodlights shall, whenavailable, be placed in the Control Center incase of nocturnal fires.f. Government equipment shall be

marked with tags or symbols for easyidentification and priority evacuation in caseof fire or other emergency.SEC. 9. Contingency plan. In any

major prison disturbance, the Superintendent shallpersonally take immediate control and implement astanding contingency plan to repel the aggressionand stabilize the situation. Drills shall be conducted

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from time to time to familiarize personnel with theirduties under said plan.

As enumerated in the BuCor Operating Manual, it

provides the essential components and elements of the plan

such as:

1. Designating authority to declare an emergency and to

order shutdown and evacuation, total or partial.

2. Establishing an emergency chain of command.

3. Establishing reporting responsibilities and

channels.

4. Designating an emergency headquarters, or command

post.

5. Establishing training Emergency Teams for each

shift.

6. Establishing specific asset protection and life-

saving steps.

7. Designating equipment, facilities, and locations to

be used in an emergency.

8. Communicating necessary elements of the emergency

response plan to all affected personnel.

9. Communication with outside agencies.

10. Public relations and release of information.

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While the authority to declare an emergency and to

order shutdown and/or evacuation normally rests with the

Superintendent, this sometime is exercised by Assistant

Superintendent of the prison camps. Whoever is so

designated in the plan must be someone available or on call

at all times.

The person in charge of executing the plan has to have

alternates to ensure coverage around the clock. He will be

responsible for initiating action according to the plan in

an emergency, ordering and directing shutdown and/or

evacuation when so authorized, making emergency

announcements, and coordinating emergency responses. Often

this emergency plan in charge is the facilitys

administrator, who will take advantage of existing

organizational chains of command, with orders and

directions filtering down through department heads to

supervisors, foremen, and working personnel.

As indicated, specific responsibilities in the plan

have to be spelled out in advance for prompt, efficient and

effective execution.

V. THE NBP CONTINGENCY PLAN DURING EMERGENCIES

Historically, there were incidents of riots and other

violent disturbance that occurred at NBP but it is notable

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to mention that all remained to its controllable level.

This can be attributed to its existing contingency plan in

case of emergency situations which are embodied in

Operational Plans as exemplified below:

CONTINGENCY PLAN IN CASE OF RIOTS ANDVIOLENT DISTURBANCES

I. BACKGROUNDA. GeneralPrison riots generally center on complaints

concerning prisoners conditions and demands fortheir improvement. In certain cases, these may becaused by the withholding of privileges previouslyallowed but are curtailed as new issues againstthem surface.Violent disturbances are almost always triggered bythe animosities between rival inmates gangs, suchas Sigue-Sigue Sputnik, Bahala Na Gang, GenuineIlokano Gang, Batman and others. A fight betweentwo gangs may escalate into free-for-all making ithard to control and may result in the increase ofthe number of casualties.

Above conditions are made worse by theconnivance and/or participation with inmates ofsome unscrupulous prison guards and NBPemployees.

B. Support Units1. Special Action Forces2. Adjacent PNP Stations3. Adjacent Fire Stations4. Adjacent Hospitals

II. ASSUMPTIONS1. The main target victims and/or hostages

of rioting inmates are the Director, Assistant

Director, Superintendent, Chief of the NBP Hospitaland other prison officials and/or visitors.2. During riots and disturbances, hostages

and/or victims are mostly prison officials, hospitalstaff, prison guards, BuCor employees and othervisitors.

3. Institution of new prison reforms willtrigger the rise in the incidence of riots anddisturbances.

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4. Inmates take advantage of riots as anoccasion or opportunity for escape.

5. Rioting inmates can be neutralized

through their Bosyos and Mayores.6. Reasonable force is necessary to control

and contain riots and disturbances.7. Riots and disturbances usually occur at

the BuCor Maximum Security Compounds.III. EXECUTION

A. Planned or calculated riots/violentdisturbances

1. Chief Investigation and IntelligenceSection confirms information on the existence ofplans to state riots or disturbances and reports thesame to the Prison/Penal Farm Superintendent.

2. Upon confirmation, efforts should bemade to prevent its occurrence by:

a. Conducting dialogues with gangleaders to enable proper authorities toascertain the reasons behind the plannedriots and take appropriate preventiveactions.

b. Increasing the strength of custodialforce detailed at the security compoundconcerned.

c. Coordinating with support units tosend contingents in a worst case scenario.

3. In case preventive measures fail,prescriptions for spontaneous riots shall bepursued.

B. Spontaneous riots/violentdisturbances

1. The first person to notice or discover theoccurrence of a riot or disturbance shallimmediately alert other guards/personnel byshouting riot, riot or by firing three successiveshots into the air or by blowing the whistlecontinuously. The prison guard nearest to the sirenswitch, who has observed the commotion or has

heard the warning or has been informed by radio,will sound the general alarm.

2. All inmates not actually involved in therioting will be immediately locked-up in theirrespective cells.

3. The BuCor Director, NBP Superintendentand other authorities must be immediatelyinformed of the incident.

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4. If the disturbance occurs during visitinghours, all visitors shall be ushered out from thevisiting premises to a safe place of considerable

distance from the riot area.5. Simultaneously all available prison guards

to include those residing within the reservation willimmediately report to the NBP Superintendent, theCommander of the Guards, or the Officer of the Dayand will make themselves available for emergencydeployment. Main gate and all other escape routesmust then be closed to prevent jailbreaks. The OICwill assess the situation and if it so warrants, willcall immediate assistance from the MuntinlupaPolice, Fire Department and/or Hospital and informthe BuCor Director and the NBP Superintendent of

the prevailing situation.6. When things are set, the OIC with the use

of installed sound system shall direct the inmatesto cease and desist from fighting, and ask them toreturn to their respective cells/dormitories or facepossible use of force. Known gang leaders shall becalled by their names and shall be asked to try tostop the riot/disturbance.

7. The armorer shall immediately issuefirearms, teargas canister and gas masks to alertpersonnel. All F/As shall be tagged/receipted (twocopies) for immediate issuance and retrieval.

8. If efforts of the OIC fail, he shall form 2groups as follows:

Group I composed of SWAT personnelarmed with batons, tear gas and gas masks.

Group II composed of PGs and personneltrained in firearms handling, ready to fire uponorders of the Superintendent when the lives of theguards are in danger.

9. Superintendent then orders the throwingof teargas upon clearance with the Prison/PenalFarm Superintendent. The number of canisterthrown shall be enough to produce the desired

effect. When the area is saturated with gas, thepersonnel with gas masks shall attack the inmatesusing the batons to force the rioter to halt and toget their leaders. Responding policemen shall be onstandby for possible assistance.

10. If the fire crew arrives and thedisturbance is still in progress, pressurized waterfrom the fire truck will be used to disperse the

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rioter. The NBP fire truck shall be ready at all timesto assist in quelling the disturbance.

11. In a worst-case scenario where there

is an imminent danger of mass jailbreak or seriousassault upon the members of the custodial forceand responding policemen and firemen, selectedmarksmen from the 2nd group may be ordered tofire by the NBP Superintendent only after duewarning by oral command, whistles or warningshots. Extreme caution must be exercised toensure safety of responding forces and innocentinmates. Fires aimed at rioters must not beprimarily to kill but to maim only.

12. Custodial personnel assigned at theprison towers shall prevent the possible escape of

inmate rioters who may attempt to climb over theperimeter fence. They shall also warn the SWATteams of the particular areas of disturbance andshall assists through radio or oral communication,in directing any possible assault against the rioters.

13. Custodial personnel/SWAT deployedinside the Maximum Security Compound shall givedue priority in securing areas considered critical,such as:

a. NBP Hospitalb. Control Gatec. Gate 4

d. Building 1e. Building 14f. Post Tower 8

14. To minimize the danger of any riotspilling to other security compounds, MediumSecurity Compound inmates shall be locked in theirrespective cells in case of riots in the MaximumSecurity Compound or other compounds. Moreover,the Minimum Security Compound and otherbuildings close to the Depot shall also be locked toprevent possible escapees from seeking refugethereat.

15. When the need arises, out-of-duty PGsliving within the NBP Reservation and other maleNBP employees shall, upon being informed of theoccurrence of a riot/disturbance, make themselvesavailable to the NBP Superintendent who shall givethem instructions to act as possible reinforcements.

16. During riots, the central gatesinterconnecting the different building/dormitories

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inside the Maximum Security Compound shall beclosed to contain the disturbance within a particularlocation its spread to adjacent areas.

17. After the riot or disturbance, thefollowing procedures shall be undertaken:

a. NBP Hospital personnel administerfirst aid to the injured;b. Oversees conduct headcount;c. Team leader of Group II supervises thesegregation of leaders and agitators;d. Perimeter guards double checksecurity of compound premises;e. Chief, Intelligence and InvestigationSection conducts thorough investigationof the incident and prosecute those who

have violated laws, rules and regulations;f.General Services Division personnelrepair damages in the prison compound;g. The Penal Superintendents or a studygroup adopts effective measure toprevent repetition of similar incidents;h. Prison/Penal Farm Superintendentssubmits report to Director, Bureau ofCorrections;i. A spot report on the riot/disturbanceincident shall be immediately preparedfor the information of the Department of

Justice and/or other higher authorities.IV. OTHER INSTRUCTIONS

1. Duty RCN personnel and switchboardoperators shall reserve the use of availablecommunication access equipments to the on-goingoperations.

2. An ambulance shall always be on standbyduring riots and disturbance ready to evacuate thewounded/injured and other victims.

3. In case of brownout/power failure when ariot is in progress or is imminent, the

Transportation Section shall utilize available

vehicles to illuminate the gates of the securitycompounds and other probable escape routes.

4. News reporters and other mediarepresentative shall not be allowed to take part inthe anti-riot activities. They shall be prohibited frominterfering in any way in the conduct of operationsto contain the disturbance.

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5. Religious adviser/volunteers shall assist inevacuation procedures and help in administeringfirst aid to the wounded/injured.

6. During riots, all gates shall be closed toprevent visitors and other unauthorized personsfrom disturbing/delaying the restoration of peaceand order within the security compound.

7. Additional custodial guards shall beposted outside the perimeter fence to foil anypossible attempt by outside force who may takeadvantage of the commotion cause by the riot torescue some inmates.

8. When the outbreak of riots becomeimminent, nearby hospitals and medical clinicsshall be promptly informed and advised to make

prior arrangements to accommodate possibleemergency patients.

9. Custodial guards and other anti-riotpersonnel shall, at all times, observe maximumtolerance in containing riots and disturbances.V. EMERGENCY EVACUATION PROCEDURES

The procedures to be implemented in case ofprison disturbance and other emergencies that maytranspire inside the NBP Maximum SecurityCompound are stated below. These generalprocedures with appropriate revision shall beadopted in the other BuCor Security Compounds.

A. At the sound of siren/alarm1. All personnel inside the Administration

Building must immediately proceed totheir respective office entrance and shutthe door close. Upon security notice,everyone shall:a. Stand up and walk briskly and in anorderly manner towards the main door;b. Once outside the door, walk towardsGate No. 1 and go outside; andc. While moving out must religiously

observed the following:1). Do not panic;2). Avoid unnecessary noise;3). Do not run;4). Assemble at the Flag Pole area andwait for further instructions.

2. Office orderlies

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a. The designated personnel of an officeshall lock the door behind him and shallsee to it that their respective are

assembled in the Social Hall;b. A uniformed guard from theCommander of the Guards Office shalltake charge of the assembled orderliesand shall see to it that all are accountedfor and at stand guard;c. The civilian personnel then proceedoutside and assemble with the group atthe Flag Pole area; andd. The same procedures shall apply withthe offices in the second floor.

B. The alarm/siren shall be sound twice

as soon as the situation is undercontrol.

VI. LETTER DIRECTIVE

There is continuity in the emergency planning

operations operant and mandated by the present leadership.

Besides those stipulated in the Corrections Operation

Manual, there are memorandum to highlight the importance of

being vigilant and responsible. The other emergency

preparedness plans are in the form of Letter Directive.

Example is presented below. The purpose of this letter

directive is to set a coordinated action in case of

emergency situations.

LETTER DIRECTIVE 01/04 PAGMAMASID

1. REFERENCESa. Bureau of Corrections Operating Manual

dated 30 March 2000.b. Directors guidance

2. GENERAL

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This letter directive set forth the operationalguidance in conducting pro-active and reactivemeasures and contingency operations during the

observance of the Lenten Season within the NBPreservation area.3. SITUATION

a. Recent developments in Metro Manila isalarming where suspected ABU SAYYAF GROUP(ASG) Terrorist were arrested with explosivesmaterials and one of the demands of the group isthe unconditional release of all Moslem brothers ingovernment custody.

b. Considering that three (3) top leaders ofASG and JEMAAH ISLAMIYAH (JI) namely Hector

JANJALANI, Mohammed AMIN and Argus DWARKINI,

an Indonesian National, are detained at theMaximum Security Compound of the New BilibidPrison, rescue operations or any offensive action tobring havoc to BuCor is not remote.4. MISSION

Intensify pro-active defense and securitymeasures to preempt violent disturbances withincolony reservation area.5. EXECUTION

a. Directors IntentSecure the NBP against the threat, to

maintain the stability and orderliness within

the prison reservation and confinement area.b. Concept of Operation

This security and contingency operation isa continuing activity that has two distinctstages.

ALERT LEVEL I (Pro-active securitymeasure) This ALERT Level I is designedto predict or preempt the probability ofoccurrence of crises at the same timeprepare to handle them when they occur.

ALERT LEVEL II (Reactive/EmergencyCrisis Situation) This ALERT Level II is

when the crisis/emergency situation occurs.This involves planning for probable crisissituation to enable the bureau to react whencrisis occur. The Bureau must organize, planand maintain readiness of special reactionand constrict security when the need arises.

ALERT LEVEL I (PRO ACTIVE SECURITY MEASURE)

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1) The NBP shall organize one (1) ReadyReaction Platoon with appropriate vehiclesunder the direct supervision of the Assistant

Director for Prison and Security and ready fordeployment to conduct counter offensive,direct actions and special reaction operationsto preempt violent disturbance within theprison reservation and inside confinementarea, on order.2) Strengthen the security of the main gateand strict implementation in the conduct ofcheckpoint and curfew hours with thereservation area.3) Intensify intelligence, counter intelligence,searching and active security patrol within

reservation areas and inside confinementfacilities.

ALERT LEVEL II (REACTIVE/EMERGENCY CRISISSITUATION)

1) The NBP shall activate and organize theControl Center as provided in the BuCoroperating Manual to orchestrate, execute,synchronize and monitor the timelyimplementation of detailed actionplan/contingency operations during crisis oremergency situation.2) At this stage, the Ready Reaction Platoon

will be under the direct supervision of theCrisis Management Team.3) All officials, employees, prison guardsshall be placed on Heighten Alert Status (24hours alert duty) to perform specific andimplied tasks as may be necessary to quellthe disorder and normalize the situation.4) Whenever the alarm Siren is sounded, allprison guards, employees shall take theirrespective pre-designated defense andsecurity post immediately. Likewise, allinmates shall be ordered to lie flat down on

the ground, face down and with arms andlegs spread out in case of riot, and/orpadlocked in their respective dorms in caseof attack.c. Directorial Staff Supervision1) NBP Superintendent

a) Maximize deployment of assignedprison guards to secure the NBP.

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b) Assign pre-designated defense/securityposition to each prison guards forstrengthen security of the NBP.

c) Organize and standby one (1) fullyarmed Ready Reaction Platoon withcomplete equipment in from of the AdminBuilding ready for deployment on orders.d) Intensify intelligence, counterintelligence and patrol within NBPreservation and inmates confinementarea.e) Coordinate with the nearest PNP or AFPStations for reinforcement as necessary.f) Establish checkpoint along main roadgoing to Admin Building, Medium and

Maximum Security Compound andsubsequently conduct intensive search ofall vehicles including PUJs/Tricycle and beready to engage at all cost as thesituation dictates.g) Establish semi-permanentbarricades/concertina wires to the AdminBuilding, Medium and Minimum SecurityCompound and Main Gate.h) In case of ALERT Level II, secure thethree (3) subject inmates figured out asterrorist in a safe place inside the

Maximum Security Compound andpadlocks all dorms, lock all gatesspecially the Control Gate and Gate 1.i) Direct the FOD to augment the MainGate on call and establish check point at

Justice Triangle.j) To perform other task as directed.

2) Administrative Divisiona) Issue appropriate orders for theassigned members of Ready ReactionPlatoon.b) Coordinate with PNP/AFP elements in

the area for force augmentation asnecessary and consolidate at the MainGate for further inspection.c) Perform other task as directed.

3) General Service Divisiona) Provide one (1) vehicle with driver andfuel to transport the RRP. Vehicle onstandby alert in front of administration

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building every 1700H, ready fordeployment of order.b) Provide other special services as

requested.c) Perform other task as directed.

4) Supply Division/Armorya) Issue FA and Basic Load ammunition toall Prison Guard. Priority of effort will beto the designated Ready ReactionPlatoon. Guard on Duty, Security andother details on that order.b) Provide Metal Detector and fish-eyesearch mirror for the use of security detailat Main Gate.c) Provide special services/incentives to

deployed personnel. Priority of effort willbe on directly engaged personnel.d) Be ready to re-supply or providelogistic and other equipment asnecessary or as requested.e) Perform other task as directed.

5) Medical Coordinators Officea) Provide medical assistance to allpersonnel. Priority of effort will be onengaged personnel.b) Alert one (1) medical team withambulance ready for deployment on

orders.c) Priority of Medical Evacuation will be onengaged personnel.d) Coordinate with the nearest medicalstation/hospital for medical assistance.e) Perform other task as directed.

6) Public Information Officera) OPR (Office Primary Responsible) forthe control of TRI Media and publicationof press releases and/or new informationand other articles as necessary or asrequested in coordination with the Office

of the Director.b) OPR for the coordination andarrangement of Press Conferences asnecessary or as the director may desire.c) Perform other task as directed.

7) Executive Assistance for Intelligence,Operation and Special Investigation Group, ODC

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a) Intensify intelligence and counter-intelligence to preempt violentdisturbance and inmate confinement

area.b) OPR for the inner security of theDirector and his immediate family.c) OPR for security of Directors Officeand Directors Quarters.d) Provide daily password/countersignevery 1700He) Provide tactical and Operationsassistance to Crisis Management Center(Control Center) as necessary as directed.f) Provide Tactical and Operationalassistance and technical supervision and

or augmentation to the designated or asdirected.g) Conduct direct action/specialoperations as necessary and/oraugmentation to the designated or asdirectedh) Perform other task as directed.

8) Signal Division (RCN)a) Provide appropriate communicationequipment. Priority of effort will be on theOffice of theDirector/Superintendents/Ready Reaction

Platoon/Guard on Post/Security on thatorder.b. Prepare or update primary andalternate radio net diagram.c) Perform other task as directed.

d. Coordinating Instructions1) Lateral coordination is encouraged2) Prison superintendent and OIC to submitIMPLAN (Attention XA for Operations, ODC)NLT + 2400 hours upon publication.3) C2 and CMC location initially at MonitoringOffice, ODC. Alternate TBAL.

4) Submit SITREP every + 01 upondeployment.

5) Ensure all Post Towers are manned andready to engage armed intruder or threat atall costs.6) Priority of message thruradio/telephone/messenger on that order.

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7) In case of emergency or crisis situation,custodial personnel (PGs) residing insideprison reservation area shall immediately

report to the Admin Building for properdisposition/accounting prior to occupation ofthe designated position.8) Custodial Personnel residing outside theprison reservation areas shall report to thedesignated consolidation area (TBAL)immediately upon notice or information ofthe alert status for accounting prior tooccupation of the designated position.9) Primary Casualty Evacuation Point will beat Admin Building lobby. Alternate TBAL.10) When the ALERT Level II is in effect, all

civilians and other personnel who are notinvolved in this operations and are loiteringin from of Admin Building or Area ofEngagement (AE) shall be gathered at theAdmin Building lobby or nearest safe placefor their safety.11) Be ready for the conduct of walkthrough/dry run/in-announced call-to-arms(Camp Defense/Contingency Operations)anytime upon publication.12) This letter Directive shall take effect

upon publication.

VII. CONCLUSION

As differed from business and industrial facilities,

the New Bilibid Prison has a distinct and peculiar set-up

when it comes to emergency situation. Inherent to its

operation is the continuous challenge from prisoners in

testing its physical, personnel and security strength. The

prevalence of escape, riots and other prison disturbance is

the order of the day that prison administration must

address objectively, competently and humanely.

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With the existence of a sound emergency plan, the NBP

has already made the first step of avoiding an emergency

situation to progress into a total disaster.

The emergency procedures and other emergency plans

that have been presented in this paper are only some of the

measures being executed by the NBP administration in

addressing these challenges. These emergency procedures and

plans, through the years, have proven to be effective and

operant in addressing prisons challenge and concerns. It

details the role of each employee to be vigilant and

responsible to respond so as to prevent further

damages/injuries and normalizes the prisons operation the

soonest possible time.

So, can NBP effectively respond the emergency

situation like riots and other man-made prison disturbances

based on the parameter set? Among the parameter used are:

first, existence of viable written emergency preparedness

plan in case of riots and other man-made prison

disturbances; second, the responsiveness of the written

emergency preparedness plan; and third, the readiness of

the NBP in case emergency situations arises.

Evaluating the present position of the NBP based on

the requirements imposed by an ideal emergency plan, the

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existence of a viable written emergency preparedness plan

is in place. NBP follows these written plans based on the

type of emergency cases. The entire organization has

matured in terms Emergency Preparedness. The procedures to

be undertaken in case of man-made emergency situations are

incorporated in detail at the BuCor Operating Manual,

Operation Plan and Letter Directive.

Likewise, the prison administration has anticipated

every possible emergency scenario---both natural and man-

made--- and has prepared plans for each emergency. It

recognized the importance of good plan. The NBP emergency

plan is not only in writing but precisely and specifically

imbibes by the organization.

As to the responsiveness of the written emergency

preparedness plan, the written emergency plan is considered

responsive in terms of its substances and contents. It

appoints the coordinator, details in simple and clear

writing the action to be observed, the individuals role,

and the location of control center, and the evacuation site.

On the third parameter, the readiness of the NBP to

respond when the emergency situations arises, this cannot

be totally ascertained. There are no absolute measures to

quantify and qualify the readiness since there is no major

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catastrophe or emergency cases that occurred in the past

three decades. The last emergency cases occurred was in

early eighties involving mass escapes of Hukbong

Makabayan, where more than 70 prisoners were massacred

along the perimeter fence. Also, simulated emergency

exercises where announced early thus, defeated its real

purpose --- ascertaining the readiness in case of emergency

situation.

However the response time of personnel to the

emergency cases was at all time prompt. For the first five

minutes when the emergency was reported, Emergency Response

Teams (ERT) was already in their respective stations.

It is in this regard that emergency readiness should

be reached. It means that preparation has reached the point

where the personnel promptly react to save life and protect

property once the facility is hit or threatened by a major

emergency situation anytime with confidence and competency.

However, because of the constant movement of personnel, the

termination and/or retirement of some and the hiring of new

staffs, the dissemination process of the plan is greatly

disrupted. There must be parameters to indicate whether

transmission of information is effectively done. Likewise,

the principles of unannounced dry-ran is not being

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observed. Emergency exercises should be unannounced so that

gaps and lapses in the plan recognized and re-written to

suit the present conditions and problems.

VIII.RECOMMENDATIONS

The NBP Emergency preparedness, given the emergency

procedures and plans it has devised, is surely one step

ahead of any emergency situation. However, for the

procedures and plans to be effective, certain steps must be

undertaken in enhancing the skill of its personnel and

upgrading its equipment. Personnel and equipment are always

supplementing one another.

In this regard, the following recommendations are

worthy of considerations:

Continuous security orientation/seminars and in-

service trainings should be undertaken to enhance the

skill and awareness of the prison personnel in the

importance of their role during emergency situation.

Include Emergency plan and its drill as part of the

performance appraisal test of the prison guards and

other staff. It may serve as a gauge or basis for

promotion or recognition.

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IEC materials are deployed to each office for daily

reminder or the emergency diagram to be place in

conspicuous and strategic areas within the vicinity. A

program specifically destined to challenge the

knowledge and awareness of the staff must be in

placed.

Include in the budget allocation as one of the

priority project the procurement of equipment needed

during emergency situation.

Emergency plan should be reduced in booklet form and

well disseminated to every member of the emergency

response team.

Periodically testing the plan or conduct dry ran

exercises, at least twice a year, for the prompt,

proper, and effective execution of the emergency plan

should emergency situations occurred. Drill must be

done regularly in unannounced manner simulating

emergency cases. Appraisal must be done to identify

gaps and lapses of the emergency preparedness plan. No

matter how exact and accurate the plan, it should be

well disseminated, tested, updated, and re-written to

address some of the recognized problems.

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Recognition of collaborative efforts after each

emergency exercise must be done to reinforced positive

attitude and responses.

IX. REFERENCES

Bureau of Corrections. Bureau of Corrections Operating

Manual. New Bilibid Prison, 2000: (NBP Reservation,

Muntinlupa City, 1776)

Gion Green & Robert J. Fisher. Introduction to Security.

Butterworth Publisher, 1987: (80 Monvale AvenueStoneham, MA 02180)

James F. Broder. Risk Analysis and the Security Survey.

Butterworth Publisher, 1984: (80 Monvale Avenue

Stoneham, MA 02180)

James V. Bennet.I Chose Prison. Alfred A. Knopf, Inc.,

1969: (United States of America)

Office of the NBP Superintendent. Contingency Plan In Case

Of Riots and Violent Disturbances. New Bilibid Prison,

1998: (NBP Reservation, Muntinlupa City, 1776)

Office of the Asst. Director. Oplan Pagmamasid. Bureau of

Corrections, New Bilibid Prison, 2004: (NBPReservation, Muntinlupa City, 1776)

Philippine Society of Industrial Security. Certified

Security Professional Review Manual. PSIS, 2003:

(Legaspi Tower 3000, Roxas Boulevard, Pasay City)

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Emergency Response at NBP, An Assessment

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