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1 National Policy on the Management of the Dead and the

2 Missing Persons During Emergencies and Disasters
3
4 (*****This Manual covers only NATURAL disasters and assumes that all dead bodies
5 found are free from diseases. Otherwise, if this manual will also cover MANMADE
6 disasters, an entry on handling Infectious diseases will be included****)
7
8 I. BACKGROUND AND RATIONALE
9
10 The Philippines had been a witness to the effects of recent major disasters
11 which have claimed thousands of lives. Mostly, the concentration of the
12 government lies on the response, recovery and management of the survivors.
13 Less attention has been given to the administration and supervision of the human
14 remains and missing persons. Little did we know that management of the dead is
15 one of the most difficult challenges of disaster management
16
17 There is a need to standardize the system of handling the dead bodies
18 from their recovery, identification, transfer and final disposal without setting aside
19 the legal requisites and norms, and guaranteeing respect for the dignity of the
20 deceased and their families in accordance with their cultural and religious beliefs.
21
22 This manual will serve as an integral component of the National Disaster
23 Risk Reduction Plan aimed to educate the LGUs, local communities and
24 organizations of first responders on handling mass casualties on one hand, and
25 the preservation of proper decorum for those who passed away, on the other.
26
27 II. OBJECTIVES
28
29 I. General
30 To provide a national policy framework as a guide to an efficient and a well
31 coordinated action in managing the dead and the missing persons during
32 emergencies and disasters.
33
34 II. Specific
35
36 1. To strengthen the coordination and collaboration among the partner agencies
37 and stakeholders in the MDM;
38
39 2. To provide standards, guidelines, systems and procedures to institutionalize
40 the preparedness and response activities of the health sector and other
41 partner agencies in the MDM; and
42
43 3. To establish resource-sharing mechanism among the key players in the
44 MDM.
45
46 III. SCOPE AND COVERAGE
47
48 This policy shall apply to the NDRRMC including their respective attached
49 agencies. It shall likewise apply to the stakeholders/ agencies at all levels and all
50 disciplines, institutions, government, non-government, private organizations and
51 other key players whose functions and activities contribute to the management of
52 the dead and the missing persons during emergencies and disasters.
53

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54 IV. DEFINITION OF TERMS

55
56 A. Certificate of Missing Person B e l i e v e d to be Dead in times of
57 Disaster shall refer to a document to be issued by the NDRRMC indicating
58 that the person is believed dead as a result of a disaster based on validation
59 and recommendation by the concerned Local Government Unit. This
60 document is issued in lieu of a Death Certificate and can be used solely for
61 the processing of claims for benefits.
62
63 B. Collective Grave shall refer to the burial of two (2) or more dead
64 bodies/body parts in an orderly process, preserving the individuality of every
65 body, and maintaining individual characteristics of each body.
66
67 C. Cremation shall refer to the process that reduces human remains to
68 bone fragments of fine sand or ashes through combustion and dehydration.
69
70 D. Death Certificate shall refer to documented proof of the death of
71 someone; a legal instrument which includes the victim's name, age,
72 sex, the cause and manner of death, the time and date of death, as
73 well as the professional who confirmed the death.
74
75 E. Embalming shall refer to process of preparing, disinfecting, and
76 preserving a dead body before its final disposal.
77
78 F. Exhumation shall refer to the removal of dead body from its grave;
79 usually done to carry out examination or to bury it in another place.
80
81 G. Management of the Dead and the Missing Persons during
82 Emergencies or Disasters (MDM) shall refer to the five domains namely:
83 ( 1 ) Search and Recovery; (2) Identification of the Dead; ( 3 ) Final
84 Arrangement of the Dead; (4) Handling the Missing Persons; and ( 5 )
85 Assistance to the Bereaved Families.
86
87 H. Mass Fatality Incident shall refer to any event resulting to number of
88 deaths large enough to disrupt the normal course of health care services
89 usually a result of natural and/or human-generated disasters including
90 terrorism or the use of Weapons of Mass Destruction.
91
92 I. Mass Grave or Common Grave shall refer to the indiscriminate burial of
93 more than two (2) un-identified bodies/body parts in the same excavated
94 site.
95
96 J. Missing Person s ha l l r e f e r t o a n y p e r s o n r e s i d i n g , working,
97 studying or sojourning in a community who is directly affected by disaster
98 and is nowhere to be found thereafter and has not been heard of since the
99 disaster.
100
101 K. Missing Resident of the community, not included in the census shall
102 refer to any person residing in the affected community after the census was
103 done and presumed to have been directly affected by a disaster,

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104 nowhere to be found thereafter and has not been heard of since the
105 disaster.
106
107 L. Missing Resident of the disaster affected community shall refer to any
108 person residing in the community, whose name appears in the
109 community census, presumed to be in the community during the
110 disaster, nowhere to be found thereafter and has not been heard of since
111 the disaster.
112
113 M. Missing Person from outside the community shall refer to any person
114 living outside the affected community, who presumably went to the
115 community and was directly affected by a disaster, then nowhere to be
116 found thereafter and has not been heard of since the disaster. They
117 c a n b e c l a s s i f i e d as w o r k e r s , passersby, and transient visitors.
118
119 N. Missing Resident working/studying outside the disaster affected
120 community shall refer to any person residing in the affected
121 community, who works or studies outside this community but presumed to
122 have not gone to work or school at the time of the disaster, nowhere to
123 be found thereafter and has not been heard of since the disaster.
124
125 O. Temporary Burial shall refer to shallow burial of two (2) or more dead
126 bodies/body parts in an orderly process, preserving the individuality of
127 every body, and maintaining individual characteristics of each body
128 pending proper identification and disposition.
129
130 V. GUIDING PRINCIPLES AND OPERATIONAL FRAMEWORK
131
132 A. Guiding Principles
133 1. All efforts shall be exerted for proper retrieval, identification and disposition
134 of the remains in a sanitary manner with cautions to prevent negative
135 psychological and social impact on the bereaved and the community
136 including the responders.
137 2. Every dead person has the right to be found, to be identified, and to be
138 buried according to a culturally acceptable norm.
139 3. Rights to privacy of the dead shall be observed at all times.
140 4. The dead shall be treated with utmost respect. In death, money does not
141 matter, material possessions do not matter; dignity is what should be
142 cared about.
143 5. When death is the result of a disaster, the body does not pose a risk for
144 infection.
145 6. Victims shall never be buried in common graves.
146 7. Mass cremation of bodies shall never take place when this goes
147 against the cultural and religious norms of the population.
148 8. Every effort must be taken to identify the bodies. As a last resort,
149 unidentified bodies shall be placed in individual niches or trenches, which
150 is a basic human right of the surviving family members.
151
152

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153 B. Operational Framework

154
155 1. A coordinated body shall be established under the National Disaster Risk
156 Reduction and Management Council (NDRRMC) primarily for
157 management of the dead, the missing, and the bereaved families during
158 emergencies and disasters led by the Department of Health;
159 2. Recovery/Retrieval Operation will commence simultaneously with the
160 Search and Rescue Operation and will end upon the declaration of
161 the NDRRMC as per recommendation of the Local Disaster Risk
162 Reduction and Management Council concerned;
163 3. In any event of disaster, the Local Health Officer of the concerned LGU
164 shall lead/coordinate in the management activities of the dead, the
165 missing and the bereaved families;
166 4. If a disaster occurs within the limits of a Barangay, the concerned
167 Barangay Captain shall lead in the MDM and serve as incident
168 commander;
169 5. If two or more Barangays are involved, the concerned City/ Municipal
170 Health Officer shall lead in the MDM activities;
171 6. If two (2) or more municipalities are involved, the concerned Provincial
172 Health Officer shall lead in the MDM;
173 7. If two (2) or more provinces are involved, the concerned Regional Health
174 Director shall lead in the MDM;
175 8. In providing assistance to the bereaved, the Social Welfare Office of the
176 concerned LGU shall be primarily in-charge supported by other
177 concerned agencies; and
178 9. In every agency at all levels, the MDM shall be incorporated as a
179 component of the Emergency/Disaster Risk Reduction and Management
180 Program and the Crisis Manual for Natural Disasters.
181
182 C. Emergency Preparedness, Response and Recovery Plan
183
184 1. All concerned agencies shall have an Emergency Preparedness,
185 Response and Recovery Plan encompassing Management of Mass
186 Fatality Incidents/MDM with budget proposal to be submitted to the
187 NDRRMC for funding.
188 2. All concerned agencies shall have Emergency Preparedness,
189 Response and Recovery Plan incorporating the MDM two months after
190 the approval of the Policy on MDM;
191 3. DOH shall initiate the conduct of an Emergency Preparedness, Response
192 and Recovery Planning activity to come up with a plan to be used in
193 lobbying for funding allocation to the DBM. (Who will lobby???)
194 4. NDRRMC shall support (vague??) the Emergency Preparedness,
195 Response and Recovery Plans for MDM.
196 5. The core elements of an Emergency Preparedness, Response and
197 Recovery Plan are:
198
199 a) Background - Provides an overview or rationale for the development
200 of the preparedness, response and recovery plan.

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201 b) Plan description - Describes what is expected of the plan in terms of

202 its content, format, structure and outputs.
203 c) Goals and objectives - Goals are long-range state of accomplishment
204 towards which actions and resources are directed in a specified
205 manner by a program, the result of which is process towards the
206 fulfillment for policy. Goals are not constrained by time or existing
207 resources and need not be quantified or measured. While the
208 objectives are measurable state that is expected to exist at a pre-
209 determined place and time as a result of the application of a specified
210 procedure and resources, the result of which is progress towards the
211 achievement of goals. They are quantifiable and measurable, thus,
212 they are the basis of evaluation and monitoring process. The goal and
213 objective consists of the purpose of the plan/activity from the broader to
214 more specific perspective or outcomes.
215 d) Planning group - Consist of group of authorized key
216 players/implementer or representatives from the major
217 stakeholders/agencies that participate in a planning activity relevant to
218 the set goals and objectives.
219 e) Risk Assessment - a process of analyzing, anticipating or defining the
220 possible visible outputs or consequences of hazards once it has
221 affected the community. It includes hazard, vulnerability and risk
222 analysis. This is the basis in developing the preparedness plan of the
223 community.
224 f) Management Structures - Structure in the management that shows
225 the specific chain of a command, control, and coordination. It implies
226 the flow of reporting, coordination and communication. It reflects the
227 roles, functions and responsibilities of all the key players involved.
228 These structures in the management are best expressed through
229 the use of diagrams.
230 g) Roles and responsibilities - Functions expected to be fulfilled by all
231 personnel involved in the entire management structure.
232 h) Policies, guidelines, procedures for the developed systems -
233 Policy is formal statement by an institution that expresses a set of
234 goals of the institution, the priorities within these goals and the
235 preferred strategies for achieving those goals. It is based primarily on
236 the mandate of the institution. It is the statement of what must be
237 done. While guidelines simply state how to implement the policy. It is
238 more than of the technical know-how. On the other hand, procedures
239 explain how to implement the policy but it is focused on the
240 administrative know-how.
241 i) Emergency Preparedness Plan includes strategies and activities
242 intended to build capacity and capability to respond to emergency,
243 while Response Plan includes strategies and activities in utilizing the
244 built capacity to respond to emergency or disaster, whereas the
245 Recovery Plan entails strategies and activities in mainstreaming the
246 community/agency back to its prepared position for any forthcoming
247 eventuality

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248 VI. KEY COMPONENTS

249
250 A. Human Resource Development
251
252 1. A Manual of Operations for MDM shall be developed by the NDRRMC/DOH.
253 2. Human Resource Development Plan on MDM shall be developed by all
254 agencies at all levels.
255 3. Training shall be incorporated in the activities of the concerned agencies.
256 DOH in collaboration with the NDRRMC shall prioritize qualified trainers and
257 trainees.
258 4. Uniform and standardized training modules for MDM shall be prepared by
259 DOH in coordination with other experts to be recommended to the
260 NDRRMC for funding.
261 5. Unified strategy for MDM activities must be developed and implemented.
262 6. All workers (prioritizing trainers, first responders and leaders) in the MDM
263 shall undergo training and orientation from proper authority.
264 7. Continuing education regarding disaster victim identification and
265 management shall be the responsibility of the various agencies involved.
266 8. Responders and volunteers shall be trained or oriented on how to provide
267 psychosocial support to affected communities.
268 9. DOH shall provide free medical services through all government DOH
269 retained hospitals to all rescuers/responders to emergencies and disasters .
270 10. Regular drills and exercises must be conducted to have proper coordination
271 and uniformity during actual search and rescue activities;
272 11. All agencies shall have continuing research and development related to
273 MDM;
274 12. All benefits; support and incentives; awards and recognition
275 shall be provided to all workers;
276 13. NDRRMC shall identify and maintain a database information for all
277 search and rescue units to include accredited civilian group volunteers;
278 14. Volunteers should be properly screened and trained on management of the
279 dead and missing person during disaster before allowing to actual mission;
280 15. Psychological and physical care for the relief workers or responders shall be
281 provided after the mission by the DSWD, DOH, and PRC; and
282 16. LGU shall conduct trainings and seminars regarding the proper handling of
283 the missing/dead persons in coordination with the NBI, PNP, DOH, DSWD,
284 DILG and other agencies involved in managing the dead/missing.
285
286 B. Networking and Collaboration
287
288 1. MDM entails a multi-sectoral approach, hence there shall be a strong
289 initiative to coordinate with all agencies, other government agencies, non-
290 government organizations, private organizations as well as international
291 organizations;
292 2. DOH (or NDRRMC?) shall conduct the Inter-Agency MDM Coordination
293 Meetings;
294 3. A system for coordination and collaboration among all key players shall be
295 developed to ensure more comprehensive, integrated and
296 coordinated response to MDM for maximization of resources. NDRRMC shall

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297 be responsible for the immediate transport/mobilization of responders

298 and their equipment. DOH shall recommend to Department of
299 Transportation and Communication prioritization of transport/mobilization of
300 disaster workers and supplies
301 4. All civilian group volunteers, rescue units of the Search and
302 Recovery/ Retrieval Group shall be required to register at the
303 NDRRMC or its corresponding local DRRMC levels for accreditation before
304 going to the affected areas.
305 5. Coordination of the Search and Recovery/Retrieval Groups consisting of the
306 different agencies to include civilian group volunteers/ local rescue units
307 shall be under the responsibility of the designated AFP Task Force;
308 6. All volunteers shall properly identify themselves and ask clearance from the
309 site commander before joining the search and rescue operations; and
310 7. The local chief executive through the local health office shall coordinate all
311 processes related to the management of corpses.
312
313 C. Management Support Systems
314
315 1. MDM System shall be developed and institutionalized in the health sector
316 (DRRM?) led by the DOH.
317 2. Protocols, guidelines and manuals of operation needed in MDM shall be
318 developed and coordinated with all the members of the health sector
319 concerned (NDRRMC?) with MDM.
320 3. A common Communication System shall be established in the health sector to
321 facilitate monitoring and response.
322 4. Information Management System for MDM shall be developed to ensure
323 rapid generation of relevant information for timely dissemination to
324 appropriate target audience. There shall be a standard database
325 and information management system on MDM.
326 5. Resource Management System shall be established to ensure positioning of
327 right resources at right amount, at the right time and right place. All
328 concerned agencies shall formulate a logistics management system to include
329 the preparation of a list of logistics needed on MDM.
330 6. Public Information shall be delivered through effective Media Management.
331 Management of the Media (tri-media as a whole) shall be handled by a
332 designated Official Spokesperson from the NDRRMC /Local Chief
333 Executives.
334 7. A system for documentation of lessons learned from all MDM activities shall
335 be developed.
336
337 VII. GUIDELINES AND PROCEDURES
338
339 A. Search and Recovery Operation
340
341 Dead Body search recovery shall be done spontaneously and
342 simultaneously led by the Armed Forces of the Philippines of the
343 Department of National Defense (AFP-DND) and supported by the following
344 agencies and groups such as the Philippine National Police (PNP), Special
345 Rescue Unit of the Bureau of Fire Protection (BFP-SRU), Philippine Coast Guard

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346 (PCG), Philippine Red Cross (PRC), Private Rescue Personnel, Local Rescue
347 Unit and Civilian Group Volunteers. For the National Capital Region (NCR), the
348 Search and Recovery Operation shall be led by the PNP supported by other
349 agencies. In the event of disaster, the initial site commander shall be the Chief of
350 Police (COP) who shall tum over the responsibility to AFP upon the arrival of the
351 AFP task group, except for that in NCR
352
353 1. The Search and Rescue (SAR) Operations Commander shall establish and
354 disseminate a unified and standardized tagging system of the bodies and
355 body parts recovered;
356 2. All body parts and dead bodies retrieved onsite shall be placed in cadaver
357 bags or any appropriate means during transport to identified collection point or
358 storage area, which are preferably refrigerated, for examination or proper
359 identification;
360 3. The Local Health Office shall look after the health conditions and needs of the
361 responders and volunteers. In an event that the Local Health Office can not
362 cope, it can request support from the DOH;
363 4. Protection and safety of responders and volunteers must be observed in the
364 retrieval, handling, transport and disposition of body parts and dead bodies
365 and shall be the primary considerations of sending agencies. There should be
366 proper coordination among the agencies on this matter.
367 5. The local chief executive through the local health office shall coordinate all
368 processes related to the management of corpses including the
369 retrieval, handling, transport and disposition of body parts and dead bodies.
370
371 B. Identification of the Dead Operation
372
373 1. The Local Government Unit (LGU) shall request the NBI and/or PNP Crime
374 Laboratory for disaster victim identification.
375 2. The NBI and/or PNP shall proceed to the disaster site upon the request of the
376 LGU to assess the situation and shall establish mortuary operations in
377 coordination with the LGU.
378 3. In case of mass fatality incident caused by natural disasters, the NBI shall
379 primarily be in charge of identification of the dead. The NBI shall coordinate
380 with the PNP-CL and other related experts.
381 4. In case of mass fatality incident caused by human generated activities, the
382 PNP shall primarily be in charge of identification of the dead. The PNP shall
383 coordinate with the NBI and other related experts.
384 5. The Medico-Legal Officers of the NBI and/or PNP shall issue a Certificate of
385 Identification for all examined/processed and identified bodies.
386 6. The NBI and/or PNP shall provide the Local Health Officer, an official list of
387 identified and unidentified disaster victims
388 7. The Local Health Officer shall issue a Death Certificate based on the
389 Certificate of Identification issued by the NBI/PNP.
390 8. The LGU shall provide the NBI and/or PNP with a list of missing persons.
391 9. The LGU through the NDRRMC shall provide the Department of
392 Foreign Affairs a list of identified and unidentified dead foreigners.

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393 10. The LGU shall identify and put up areas for temporary collection or storage of
394 retrieved body parts and corpses as per local health office
395 recommendations.
396 11. The Local Health Office shall monitor the proper sanitation of the temporary
397 collection and storage area at all times and shall take the responsibility to
398 maintain the sanitary retrieval and disposal of body parts and dead bodies.
399 12. All retrieved body parts and corpses waiting for examination and
400 identification in the collection points or storage areas shall be properly
401 preserved by any appropriate and available means.
402 13. Refrigeration of bodies and body parts is preferable. In its absence,
403 temporary burial will be resorted. Chemical preservatives (such as quicklime,
404 formol and zeolite as well as commonly used disinfectants such as
405 hypochlorite) may be applied only after the examination and identification of
406 the bodies and body parts.
407 14. The NBI and/or the PNP may request the fingerprints, dental and medical
408 records of the missing/dead in the custody of other government
409 agencies (GSIS, SSS, or other offices) for the purpose of identifying dead
410 bodies only.
411 15. The Interpol Identification System for the Ante Mortem (Dead/ Missing
412 Persons Form) and Post Mortem (Dead Bodies Identification Form) forms
413 maybe used in generating the data relative to MDM. These forms shall
414 be made available (posted in the NDRRMC Website) and
415 accomplished by all agencies concerned
416 16. The NBI and/or PNP shall ensure scientific identification of all recovered
417 bodies using all possible available technologies in conformity with national
418 and international standards.
419 17. The LOU shall, in coordination with the NBI, PNP, DOH, DILO, and other
420 agencies involved in managing the dead/missing shall conduct trainings and
421 seminars regarding the proper handling of the missing/dead.
422 18. All concerned agencies shall undertake Forensic Research regarding Disaster
423 Victim Identification (DVI).
424
425 C. Final Arrangement for the Dead
426
427 1. Legitimate claimants shall be responsible for the ultimate disposal of
428 identified cadavers.
429 2. The respective embassies of identified dead foreigners shall be informed and
430 the repatriation of their bodies shall be their responsibility.
431 3. The LGU shall be responsible for the final disposition of the unidentified
432 bodies.
433 4. The unidentified bodies shall be buried in the collective or individual graves,
434 marked with their unique case numbers.
435 5. Cremation of unidentified bodies will not be allowed.
436 6. The LGU shall consult the community and religious leaders of the disaster
437 site regarding the final disposition of the unidentified bodies.
438 7. Religious and ethnic considerations shall be considered in the final
439 disposition of bodies.

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440 8. Exhumation of unidentified remains shall be done in the presence of local

441 health officials.
442 9. Necessary decontamination or dis-infection of the dis-interment areas must
443 be done.
444 10. All body parts and corpses that remained unidentified after examinations
445 shall be buried immediately according to the prescribed procedures.
446 11. No embalming procedures for identified dead bodies shall be done without
447 permission from the nearest of kin of the dead. (bereaved)
448 12. The local health office should take the responsibility to maintain the sanitary
449 retrieval and disposal of body parts and dead bodies.
450 13. All identified body parts and corpses shall be turned over to the
451 rightful/legitimate claimant accordingly.
452 14. Burial of bodies in mass graves or the use of mass cremation/burning shall
453 be avoided in all circumstances.
454 15. All unidentified bodies and body parts shall be turned over to the LGU for
455 final disposition after thorough postmortem examinations had been finished.
456 16. That the MDM related to infectious diseases and Biological, Chemical,
457 Radiological, Nuclear, and Explosives Emergencies (BCRNE) shall be done
458 in accordance with the existing DOH guidelines/procedures.
459
460 D. Management of the Missing Persons Operation
461
462 1. Provincial/City/Municipal Social Welfare Office (P/C/MSWDO) shall:
463
464 a) Establish the Social Welfare Inquiry Desks for data
465 generation/information management of missing persons and their
466 surviving families,
467 b) Manage information regarding the Identification of Retrieved Bodies/
468 Body Parts using the Interpol Identification System,
469 c) Validate and process documents of the missing persons for the Issuance
470 of the Certificate of Missing Person Believed to be Dead during Disaster
471 and
472 d) Submit to the local Chief Executive (LCE) processed and validated
473 documents.
474 2. The LGU shall submit to the NBI and/or PNP an updated list of missing and
475 dead persons.
476 3. The DSWD, DOH, and PRC, shall provide technical and resource
477 augmentation/ assistance for the medical, psychological, and physiological
478 needs of the families of the missing persons.
479 4. The National Disaster Risk Reduction and Management Council (NDRRMC)
480 through the Office of Civil Defense (OCD) as per the recommendation of
481 the LGU shall Issue Certificates of Missing Person Believed to be Dead
482 during Disaster.
483
484
485
486
487

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488 E. Management of the Bereaved Families

489
490 1. Provincial/City/Municipal Social Welfare Office (P/C/MSWDO) is the lead
491 agency in the over-all management of the bereaved families.
492 2. The Department of Social Welfare & Development (DSWD) shall provide
493 technical and resource augmentation/ assistance to the P/C/MSWDO on the
494 over-all management of the bereaved families.
495 3. The DSWD, PRC, and NGO's shall provide technical and resource
496 augmentation /assistance to P/C/MSWDO for the physiological needs of the
497 bereaved in terms of:
498 Food Assistance; Financial Assistance; Livelihood Assistance; Clothing
499 Assistance; Shelter Assistance; Management of the Orphans; and
500 Food/Cash for Work.
501 4. The DSWD, PRC, and NGO's shall provide technical and resource
502 augmentation /assistance to P/C/MSWDO for the social needs of the
503 bereaved in terms of: Family/Peer Support System; Social Welfare Inquiry
504 Desk/ Information Center; Educational Assistance; and Legal Needs.
505 5. The DSWD, PRC, and NGO's shall provide technical and resource
506 augmentation /assistance to P/C/MSWDO for the psychological needs of the
507 bereaved in terms of:
508 Training of Professionals on Critical Incidence Stress Debriefing (CISD) &
509 Counseling; Special Needs (Psychiatric/Mental Services); CISD; and
510 Counseling.
511 6. The DOH and the PRC shall provide the technical and resource
512 augmentation/ assistance for the medical and psychological needs of
513 the families of the_ missing persons, and provision of a support system
514 from among volunteers for the families of the missing persons, respectively.
515
516 E. Reporting Protocol
517
518 1. The Local Government Units (LGUs) concerned shall submit to the NDRRMC-
519 OCD, through the DOH an initial report on the MDM containing background of
520 the disaster, initial findings and initial actions taken.
521 2. LGUs shall, from time to time, submit an update or situation report to the
522 NDRRMC-OCD, through the DOH.
523 3. Final report and documentation shall be submitted by the LGUs concerned to
524 the NDRRMC -OCD, through the DOH.
525 4. LGUs and NDRRMC-OCD shall be guided by proper protocol on
526 confidentiality of reports.
527 5. NDRRMC-OCD shall be the repository of all information/ reports, which could
528 be shared and/ or accessed by concerned agencies.
529
530 F. Communication
531
532 1. In time of disasters, the established communication networks within the
533 NDRRMC member agencies shall be used in the dissemination of
534 information and other updates at all levels
535 2. The NDRRMC shall be designated as the clearinghouse for information
536 dissemination.

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537 3. The NDRRMC-OCD, DOH, National Telecommunication Commission

538 (NTC), and the Movie Television Review and Classification Board (MTRCB)
539 shall coordinate/ collaborate in drawing the guidelines in the proper
540 coverage of MDM activities.
541 4. The local health office shall conduct Information Education and
542 Communication services to the public: proper sanitation and hygiene
543 practices; emphasize that, in general, the presence of exposed corpses;
544 poses no threat of epidemics.
545
546 G. Information Management
547
548 1. All information obtained about the dead/missing person and from relatives
549 shall be held confidential.
550 2. The right of the public to information shall be respected subject to the
551 existing rules and regulations.
552 3. NDRRMC-OCD shall be the repository of all information/ reports, which could
553 be shared and/ or accessed by concerned agencies.
554 4. There shall be a list/ database of all accredited search and rescue volunteer
555 groups available at the NDRRMC.
556 5. LGUs and NDRRMC-OCD shall be guided by proper protocol on
557 confidentiality of reports.
558 6. The issuance of the Certificate of Missing Person Believed To Be Dead
559 During Disaster shall be supported by required proofs, and in certain cases,
560 such as those with respect to informal undocumented wage earners,
561 transients and passersby, shall be issued after the lapse of one year in
562 accordance with the resolution on the issuance of certificate of missing
563 person believed to be dead.
564
565 H. Logistics Management
566
567 1. All foreign donations (food and non-food) intended for disaster relief shall be
568 free from any customs taxes and duties (OSS??).
569 2. There shall be established norms and guidelines in receiving/ accepting and
570 managing donations for disasters from DSWD - relief goods and cash; DOH-
571 medicines and cash; and NDRRMC- cash and checks (fully receipted)
572 (OSS???)
573 3. All concerned agencies shall formulate a logistics management system
574 to include the preparation of a list of logistics needed on MDM for submission
575 to NDRRMC /DOH.
576 4. All agencies shall have a stockpile good for 200 victims and that would
577 last for at least three (3) days of operations (for replenishment by the
578 NDRRMC)
579 5. NDRRMC shall invest in cold storage for the dead bodies.
580 6. The LGUs shall include in their Disaster Risk Reduction and Management
581 Plan all possible logistical arrangements such as burial sites, etc.
582
583
584

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585 A. Monitoring and Evaluation

586
587 1. The local health office shall monitor the entire MDM operation.
588 2. The local health officer shall monitor the proper sanitation of the temporary
589 collection and storage area at all times.
590 3. The DOH shall initiate the conduct of Post-Incident Evaluation. (PIE)
591
592 VIII. IMPLEMENTING GUIDELINES
593
594 A. Structure
595
596 The activities related to the management of the dead and missing persons
597 is a responsibility of the DOH, AFP/PNP, NBI, DILG, and DSWD. This refers to
598 search and recovery, identification of the dead, final arrangement, handling the
599 missing, and assistance to bereaved families. These functions have to be
600 coordinated and harmonized at various sites at all levels, from the national,
601 regional and local levels
602
603 B. Roles and Responsibilities:
604
605 1. Department of Health:
606 a) Serves as the lead agency in the Management of the Dead and the
607 Missing Persons during disaster.
608 b) Leads the health sector in the formulation of policies, protocols,
609 guidelines, and standards related to MDM
610 c) Gathers, clears, and releases information regarding mortalities together
611 with causes of mortalities in coordination with all the stakeholders in the
612 Health Sector.
613 d) Provides technical advice to / and coordinates with the National Disaster
614 Risk Reduction and Management Council as well as international agencies
615 regarding MDM
616 e) Conducts public information, health education/promotion, and other
617 social mobilization or advocacy activities related to MDM
618 f) Monitors and evaluate existing policies and initiates revision or update, or
619 even formulation of new policies and guidelines pertaining to MDM
620 g) Provides and publishes the general information in handling and
621 transferring of remains. The information includes the characteristics and
622 environment of a right place that will serve as temporary work camp for
623 holding area.
624
625
626 2. National Disaster Risk Reduction Management Council - Office of the
627 Civil Defense
628
629 a) Serves as the overall oversight committee of the MDM
630 b) Identify and maintain database information for all search and rescue units to
631 include accredited civilian group volunteers.
632 c) Facilitate the immediate issuance of the certificate of missing person believed
633 to be dead during disaster.

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634 d) Provides financial support to the health sectoral plans of activities for
635 MDM, as recommended by the DOH
636 e) Provides funds for the development of standard MDM training modules
637 together with the conduct of these training, as recommended by the
638 DOH
639 f) Declares the termination of Search and Recovery Operations g. Conducts
640 inter-agency coordinating meetings
641 g) Repository of MDM information or reports that can be shared or
642 accessed by concerned agencies. It is in charge of releasing information
643 pertaining to MDM
644 Acts as the clearinghouse for information dissemination
645
646 3. Search and Recovery Groups
647
648 Composition:
649
650 a) Search and Recovery Group is composed of the Department of National
651 Defense - Armed Forces of the Philippines (DND-AFP); Philippine
652 National Police (PNP); Philippine Coast Guard (PCG), Department of Interior
653 and Local Government (DILG); Bureau of Fire Protection - Special
654 Rescue Unit (BFP-SRU); LGU Leagues and Philippine Red Cross (PRC)
655 b) Search and recovery of Dead Bodies shall be done spontaneously led by the
656 Armed Forces of the Philippines of the Department of National Defense
657 (AFP- and groups such as the Philippine National Police (PNP), Special
658 Rescue Unit of the Bureau of Fire Protection (BFP-SRU), Philippine Red
659 Cross (PRC), Private rescue groups, Local rescue units and Civilian Group
660 Volunteers
661 c) In the event of the disaster, the initial site commander will be the Chief of
662 Police (COP) who shall turn over the responsibility to AFP upon the arrival of
663 the AFP task group except in NCR.
664 d) Coordination of the Search and Recovery/Retrieval Groups consisting of the
665 different agencies to include civilian group volunteers/ local rescue units shall
666 be under the responsibility of the designated AFP Task Force except in NCR.
667 e) The Site Commander shall designate appropriate tasks to all
668 responders/volunteers before joining the search and recovery operations after
669 proper identification of themselves.
670
671 4. Group for the Identification of the Dead:
672
673 a) It is composed of the following agencies: National Bureau of
674 Investigation (NBI); Philippine National Police Crime Laboratory (PNP- CL);
675 supported by Forensic Experts; Academes; LGU Leagues and other support
676 groups. The (NBI or PNP-CL??? – no identified cluster lead) shall be the
677 lead agency in the group and if necessary, may request assistance/
678 support from other agencies. (This is to avoid duplication of functions
679 as raised in the meeting)
680 b) It is in charge of proper identification of retrieved body parts and dead bodies
681 in the least possible time.

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682 c) In case of mass fatality incident caused by natural disasters, the NBI shall
683 primarily be in charge of identification of the dead. The NBI shall coordinate
684 with the PNP and other related experts.
685 d) In case of mass fatality incident caused by human generated activities, the
686 PNP shall primarily be in charge of identification of the dead. The PNP shall
687 coordinate with the NBI and other related experts.
688 e) The NBI and/or PNP shall proceed to the disaster site upon the request of the
689 LGU to assess the situation and shall establish mortuary operations
690 f) The medico-legal officers of the NBI and/or PNP shall issue a Certificate of
691 Identification for all examined/ processed and identified bodies.
692 g) The NBI and/or PNP shall provide the Local Health Officer, an official list of
693 un-identified disaster victims for certification of missing person believed to be
694 dead during disaster.
695 h) It shall provide the Department of Foreign Affairs a list of identified and
696 unidentified foreigners through the NDRRMC
697
698 5. Group for Final Arrangement
699
700 a) The group consists of the Department of Interior and Local Government
701 (DILG) supported by the LGU Leagues, Mortuary; Cemetery; and other
702 Religious Organizations
703 b) The local government unit shall be responsible for the final disposition of the
704 bodies; in temporary burial for unidentified bodies 72 hours after death or
705 occurrence time of disaster and in collective grave for identified bodies
706 unclaimed after 72 hours.
707 c) All unidentified bodies and body parts shall be turned over to the local
708 government unit for final disposition after thorough postmortem examinations
709 had been finished.
710 d) Informs the respective embassies, through the NDRRMC, of identified dead
711 foreigners for their responsibility in the repatriation of the bodies
712 e) The LGU releases to the Legitimate claimants the identified cadavers for the
713 ultimate disposal
714 f) All unidentified bodies and body parts shall be turned over to the local
715 government unit for final disposition after thorough postmortem
716 examinations
717 g) The local government unit shall identify and put up areas for temporary
718 collection or storage of retrieved body parts and corpses as per local health
719 office recommendations.
720 h) Refrigeration of bodies and body parts is preferable. In its absence,
721 temporary burial will be resorted. Chemical preservatives (such as quicklime,
722 formol and zeolite as well as commonly used disinfectants such as
723 hypochlorite) may be applied only after the examination and identification of
724 the bodies and body parts.
725
726
727
728
729

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730 6. Group for Handling the Missing

731
732 a) The Provincial/City/Municipal Social Welfare Office (P/C/MSWDO) is the lead
733 agency in the over-all management of the missing persons under the
734 Department of Social Welfare and Development (DSWD) and supported
735 by the Department of Interior and Local Government (DILG););
736 National Bureau of Investigation (NBI); Philippine National Police Crime
737 Laboratory (PNP-CL); LOU Leagues and Philippine Red Cross (PRC
738 b) Responsible for the establishment of the Social Welfare Inquiry Desks for
739 data generation/information management of missing persons and their
740 surviving families,
741 c) Provision of psychosocial needs of the families of the missing persons to
742 include processing and validation of documents for the issuance of certificate
743 of missing person believed to be dead during disaster.
744 d) Provision of a support system from among volunteers for the families of the
745 missing persons, and;
746 e) Provision of technical and resource augmentation/assistance for the
747 medical and psychological needs of the families of missing persons
748
749 7. Group for Management of the Bereaved Families
750
751 a) This group is headed by the Department of Social Welfare and Development
752 supported by the Department of Health (DOH), Department of Interior and
753 Local Government (DILG), LGU Leagues, Philippine Red Cross, Social
754 Security Groups and other NGO's;
755 b) The group provides Psychologically and Socio-Culturally-Sensitive Services/
756 Interventions;
757 c) Provides primary consideration on Respect for Cultural Factors in Death,
758 Dying, Grieving & Funeral Practices ;
759 d) Provides the physiological, health, psychological and social needs of the
760 bereaved families.
761
762 C. Financing
763
764 1. MDM shall be an integral part of the Disaster Risk Reduction and
765 Management Plan of each concerned agency and shall be allotted a
766 certain percentage of budget for its activities/operations;
767 2. Budget appropriation for the support of the MDM operations - the rescue,
768 retrieval, recovery and identification of the dead and missing and
769 assistance to the bereaved shall be allocated by the concerned agencies
770 and the LGUs, and shall be replaced by the NDRRMC after the
771 disaster; and
772 3. During disasters, the NDRRMC member agencies shall utilize their own
773 funds for their initial activities. NDRRMC shall replenish utilized funds
774 for MDM activities/ operations.
775
776
777
778

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779 IX. SEPARABILITY CLAUSE

780
781 Should any of the provisions herein be declared invalid or unconstitutional
782 by the appropriate authority or courts of laws respectively, the same shall not
783 affect the other provisions' validity unless otherwise so specified.
784
785 X. REPEALING CLAUSE
786
787 The provisions from previous issuance and other related orders that are
788 inconsistent or contrary to this order are amended and modified accordingly.
789
790 XI. EFFECTIVITY
791
792 This Order shall take effect immediately.
793
794 XII. ANNEXES
795
796 A. Dead Bodies Identification Form (Copy/ Sample may be requested
797 from NBI/ PNP Crime Lab if available)
798 B. OSS Flowchart
799
800 XIII. REFERENCES
801
802

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