OMMSmoduleSinghanat

2014 International Conference on Public Administration (ICPA 10th ) ICPA

Collaborations in Crisis and Emergency Management :“One Mission
Multiple Sectors (OMMS) Module” A Newly Designed Collaborative

Mechanism for A Large Scale Disaster

SINGHANAT Rajbhandharak
NIDA, Bangkok, Thailand, 10310

Abstract This article addresses the comprehensive collaborative process, efforts and techniques
essential for all relevant collaborative partners to work together in a single contingency strategic
framework. When a large scale disaster happens, it seems to be “non-navigational” moment for all
public–private sectors due to their variety of management methodologies. The successful collaboration
requires both the Art of Management and also Administrative Science. Central and local governments
are to work together as well as the non-public organizations. Typical incident management structure,
for instance Incident Command System (ICS) is too narrow in scope to be effective in the event of
catastrophe or extremely large-scale disaster. There is no developed plan or pre-designed management
structure for synchronized efforts among the public sector, private sector, and non-government
organizations (NGO). In addition, establishing “One Mission Multiple Sectors (OMMS) Module” is an
idea that has not yet been considered. This article views that well-prepared management structure can
create partnership and successful collaborative network. Eventually, this typical collaborative
mechanism may lead all relevant sectors to the effective escape way from labyrinth of management
methodologies among them during the time of catastrophe.
Key words Collaborations in Crisis and Emergency Management (CbCEM), Collaborative
Mechanism, One Mission Multiple Sectors (OMMS) Module, Mutual Standard Operating Procedure
(MSOP), Synchronized Emergency Management (SEM)

1 Introduction

The global violent natural disaster era has been rising over the centuries. The 10 deadliest natural
disasters which involve mostly earthquakes and floods have killed an estimated total of 10 million
people. The First deadliest natural disaster and claimed to be the worst natural disaster in history is the
Central China Floods occurred from July to August 1931. As a result of a series of the massive
flooding, an estimated 3.7 million people died from drowning, disease and starvation. According to the
National Oceanic and Atmospheric Administration, more than 51 million people, or one-fourth of
China’s population, were affected by the Central China Floods. The consequence was not only the
tremendous financial loss but also number people deaths and injuries spread around the world.

Other recent great floods incident around the world has shaken the Emergency Agencies response
system. Thailand ‘s emergency agencies also has been affected by the 2011 great flood which cost
more than Billion US Dollars economic damages with total 813 death tolls.

The emergency management agencies who deal with large scale disaster have drawn attention
worldwide to the dangers of mismanagement, particularly in the scattered and un unified management
methodologies among multi-sector partners.

Those scattered and unified management methodologies create mismanagement during the time
of large scale disaster. It caused by different aspects and variety feature of resources needed in
pursuing the rescue and relief mission during the time of disaster. What need to be done is to share the
resources and pool the information among multi-sector partners. But different units form different
sectors belong to variety of values and management methodologies or norms. The results can be
diversed through variety and unified management methodologies used to manage their own people.
Even all sectors aim to share their resources in which some are abundant and some are scarce. The
most appropriate solution for resources problem is only finding the way out in compromised resource
sharing.

In the time of large scale disaster, the procurement of external emergency management resources
is an important tenet of both the strategic and tactical management of any sector. Those emergency

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ICPA 2014 International Conference on Public Administration (ICPA 10th )

management agencies in strategic and tactical level has to confront trade-off decision in resource
sharing. This problem can be solved by the appropriate and well planned management structure which
is able to synchronize and orchestrate the sound and tone of variety management methodologies to be a
melodious chorus of unified action.

The most possible way of unifying all sectors is to design the most appropriate management
structure to be used as a universal collaborative mechanism in which all sectors feel free to join the
joint taskforce unit. The CbEM need to be done through some intangible critical elements along with
the tangible well designed management structure which is called the One Mission Multiple
Sectors(OMMS) module. The OMMS module is designed as the collaborative mechanism in a large
scale disaster, the structure has been developed from the original Incident Command System (ICS)
simple Bureaucracy or Machine structure. The newly designed OMMS emphasizes the flexibility of
Matrix structure which its main advantages are Inter-Communication, Resources Coordination and
Allocation, and Width of skills available. Those information gathered for the OMMS designing is not
only derived from the academic stuff but also from several years practical experiences in the field of
emergency management in Thailand and many countries that was blended together in a good mix. The
author believe that this OMMS module has more advantages than its disadvantages and it can be
helpful in overcoming the failure in collaborations in crisis and emergency management that happened
in the past incident of large scale disaster.

2 Meaning and the eight elements of CbEM (Collaborations in Crisis and

Emergency Management)

The Collaboration in Crisis and Emergency Management (CbEM) is defined as “the
pre-established network of open connection to create linkage between multi-sector agencies at
Strategic and Tactical level in order to set a precondition of a holistic team from multi-sectors who deal
with crisis and emergency management. To pool and share emergency management resources so that
the holistic team can achieve the ultimate solution with efficiency in rescue and relief operation in
large scale crisis and emergency management, and eventually a holistic team be able to turn down the
crisis to normal situation as soon as possible.”

In order to transform the “Non-Navigational” management due to their variety of management
methodologies into the synchronized management requires both the Art of Management and also
Administrative Science should be employed. The Emergency Manager in all sectors has to put together
the efforts to make collaborations happened in the emergency management processes. The
understanding in definition and its elements in making the collaborations come true is the very basic
and crucial step that the Emergency Manager should learn.

In an attempt to collaborate, emergency manager should know that collaborations vary
enormously depending on their goals, settings, teams and resources. The very important activity is
human concern, and the following eight elements play an important role in making the collaboration
succeed.

(1) The First Element for collaboration is Compact. In order for a collaboration in crisis or large
scale disaster to succeed, every sectors involved needs to feel free to join a team and acknowledge that
they have the mutual agreement among them. Those agreements include the memorandum of
understanding (MoU) on the resources sharing agreement, Pre-condition and Mutual standard
operating procedures : MSOP among them in which there may be some degree of difference from the
standalone Standard Operating Procedure(SOP) using in each individual organization, and how to do a
mutual prioritization in all cases that might happen during large scale disaster.

(2) The Second Element in Collaboration is Communication, In order to find the right people to
collaborate with, the structure needs to be communicated precisely and thoroughly. Giving information
about the OMMS structure and its goals helps people decide whether to participate or not. In the
emergency situation, the collaborating efforts will be dispersed through well-set channel of
communication. This well-set channel of communication will enhance the clarification of Mutual
Standard Operation (MSOP) in which all sectors has to obey and work along with.

(3) The Third Element for collaboration is motivation. In order for a collaboration to succeed,

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2014 International Conference on Public Administration (ICPA 10th ) ICPA

every sectors involved needs to feel that they gain something from the collaboration or feel that they
are doing a meaningful thing and working towards a valuable end result. Otherwise, the collaborations
behavior will be based on forced action, giving no free will of dedication in collaboration.

(4) The Fourth Element in Collaboration is controlling. In order for a collaboration to succeed, all
parties have to conform with special rules and orders written along with the structure. So that the right
flow of Information and order can flow freely to make the mainstream of thought flow through the
whole structure.

(5) The Fifth Element in Collaboration is managing the diversity in which Collaboration benefits
from a wide range of skills and expertise in the pool of participants and talents personnel from
multi-sectors. A diverse group of participants is often the best way to ensure that this is achieved.

(6) The Sixth Element is sharing the resources. For a successful collaboration it is important to be
flexible with the ownership of ideas. This does not mean that a team should not give credit to
individuals where credit is due, but any issues of ownership of ideas or concepts need to be agreed at
the onset.

(7) The Seventh Element is Support. Supporting of the other collaborators in the process is
important, especially at times of crisis or unforeseen difficulties. Even when no hardships are expected,
the collaborative group needs to work on the basis of the trust that if someone were to need the support
of others in the group, that support would be available.

(8) The Eight Element is Building and Sustaining the Effective Team. The desired team, which
fulfilled of collaborative spirits, is the first aim of the Collaborations in Crisis and Emergency
Management (CbEM). The Second aim is team sustainability which can be built and maintain through
the informal relationship. The desired Informal relationship should be developed through annual or
bi-annual meeting in seminar occasion held by the Chairman / Commissioner.

3 A predesigned collaborative mechanism used for ultimate result of

Synchronized Emergency Management during unscheduled incident

Some idea from the Administrative Science philosophy named ‘Matrix Organizational structures’
has been used as the original idea for designing the new management structure because of many good
reasons. The ‘Matrix’ divides by functional area and by project structure. In a general known matrix
structure The Operations Planning Logistics and Finance/Administration (OPLF) core functions of the
Incident Command System (ICS) is still in its place to share those functions to another newly designed
structure. Meantime, emergency manager using any management structure still need to rely on his/her
management skills in smoothing the people in the structure. That is why the Science of Administration
still not only the star on space but also the Art of Team Management that is essential in Collaborations
in Crisis and Emergency Management (CbEM). The Team management is some kind of the Art
because the team consists of people and people do have their varied emotions. Sometimes emergency
manager have to push hard by some stick, some occasion carrot is better used in manage people. The
art of dealing with these activities may be derived from your own personal type, you may not just tell
someone to feel or not to feel if they do not want to.

Good teams are not easily formed because they must be well planned, well supported, and wisely
led in a synchronized way. Building an effective team in crisis and emergency situation requires a
leader who can foster a turbulent environment where members can interact regularly, coordinate work
efforts, engage in healthy conflict, and analyze relationships between team members. The main
difference between groups and teams is the manner in which work gets done. Group members act as
individuals in their efforts, accountability, and leadership; team members act as a cohesive unit
whereby they share work responsibilities, create mutual accountability for results, and divide up
leadership roles.

In order to manage any system effectively, an emergency manager must be able to synchronize the
limited and overlapping abundant resources available in the area and far away. The Synchronized
Emergency Management: SEM requires a pre-established team who represents all sectors in Crisis and
Emergency Management. At this point The Pre-Designed management structure can be employed as a
good collaborative mechanism. And this collaborative mechanism will be able to make efficiency

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happen for real in crisis and emergency situation where there are needs in both rescue and relief
effectively and efficiency at the same time.

4 One Mission Multiple Sectors (OMMS) Module as an appropriate management

structure in collaborations

One Mission Multiple Sectors (OMMS) Module.is generally generated from the Incident
Command System: ICS, the original idea of common management structure usually used in emergency
incidents.

The ‘ICS’ focuses on 4 main functions and some other supporting units. Those main ‘POLF’
functions are Planning, Operations, Logistics, and Finance/Administration. The Planning function may
include varied units like Resource unit, Documentation unit, Station unit, Technical Specialist–Data
Analysis, Technical Specialist-Special Needs, Demobilization. The Operation function may include
Environmental Response Branch, Clinical Service Branch, EPI and Surveillance Branch. The Logistics
function may include Services and Support Branches. The last function of Finance / Administration
may include Procurement unit, Personnel unit, Cost and Time unit, and Compensation and Claims unit.
Apparently the ICS structure is a kind of Bureaucracy structure.

Figure 1 Incident Command System (ICS) for general emergency incident

Otherwise, The hierarchy level and chain of command included in the Incident Command System:
ICS is considered to be suitable to only small scale emergency like fire incident or traffic accident even
the mass casualty incident: MCI case. Moreover, it is likely to be too narrow to large-scale disaster.

The scale or scope of disaster can be categorized into three disaster response level; Tier One level
include the incident like fire or natural disasters like slow rising floods emerged in the local or district
area. Tier Two level include incidents that a local jurisdiction does not have the resources it needs to
respond to a disaster, it turns to the state or provincial government for assistance. The Biggest or
longest period Incident in Tier Three level a disaster strikes widely and is so severe that the local
government and the State government or Provincial Administration together cannot provide the needed
resources, then the Federal Government or National Government becomes the source for those
resources. This level requires the appropriate structure for every sector to be fit in.

One Mission Multiple Sectors (OMMS) Module is the enhanced version of the ICS, which means
the simple Bureaucracy structure has to be transformed into the Flexible Matrix structure. Several
advantages of the Matrix structure are; Communication, Breadth of skill, Resources Allocation,
Specialization, and Flexibility.

The Communication is the most essential in responding to the emergency situation. Since
emergency personnel in all sectors have to contact constantly with members of different functional
areas. The matrix structure allows for information and resources to travel more fluidly between those
functional areas. The collaboration between functional areas allows an Emergency Director (ED) to
better handle complex crisis in large-scale disaster.

Breadth of skill is enhanced through the new opportunity to develop a wider set of skills than they
would in a purely function structure in simple Bureaucracy or Machine Organization.

Resources Allocation is easier to be executed because the matrix structure allows different sector
to focus on their areas of expertise. Functional Chief can focus on Operations, Planning, Logistics, and
Finance / Administration in their field, while Emergency Director can focus on achieving the goals of
their specific duty e.g., collaboration affairs, Fire & Rescue, Law Enforcement, Public Health.

Specialization is enhanced through matrix structure by allowing emergency personnel in
functional areas to specialize in a particular field. Instead of being good at a variety of tasks,
specialized emergency personnel can excel at tasks in their field of focus.

Flexibility may be the most assets of matrix structure in case of OMMS because the matrix

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2014 International Conference on Public Administration (ICPA 10th ) ICPA

structure allows for human resources to be shared flexibly across different functions. Functional areas
maintain a stock of talented employees to meet Duty’s requirements.

OMMS MODULE Chairman / Commissioner

for CbEM

(SINGHANAT , 2014 )

VC Collaboration Affairs Operations Planning Logistics Fin./Admin.
Planning
ED Fire & Rescue Operations Planning Logistics Fin./Admin
Planning Logistics Fin./Admin
ED Department of Defense Operations
Planning
ED Law Enforcement Operations Planning Logistics Fin./Admin
Planning
ED Public Health , Food , Operations Planning Logistics Fin./Admin
Operations Logistics Fin./Admin
& Shelter Operations
Operations Logistics Fin./Admin
ED Finance & Treasury
Logistics Fin./Admin
ED Telecom ,Transport

& Communication

ED Foreign Affairs

Figure 2 OMMS module for CbEM (singhanat, 2014)

5 Conclusions

The large-scale disaster has been continuing to change its pattern to more severe and more
frequent. The Public Administration Academician and Practitioner should be alert and pay attention to
this disaster era. The 2005 Hurricane Katrina and 2011 Thailand great flood has share the same failure
to collaborate all sectors related to Crisis and Emergency Management. The Failure in Collaborations
cost more than billions US Dollar to both 2005 Hurricane Katrina in US and 2011 Thailand Great
Flood. The lesson learned in many ways including preparing new Mitigation system. Also some
preparation and training provided for people and emergency personnel recently. But the most important
in dealing with any disaster is preparing the mutual platform that enable multi-sectors involved crisis
and emergency management to make collaboration succeed. The eight elements in making the
successful collaborations; Compact, Communication, Motivation, Control, Managing the Diversity,
Sharing the Resources, Support, Building and Sustaining the Effective Team have to be emphasized in
the national policy. The collaboration ideas should be disseminated to all sectors through variety of
media to public. The Collaborations in Crisis and Emergency Management (CbEM) should be widely
acknowledged to all sectors and all level of stakeholders even in the Higher Education curriculum.

The predesigned OMMS Module of management structure will enable emergency management
agencies to share resources among multi-sector agencies easier. The author believes that this
predesigned management structure can serve those Agencies as a collaborative mechanism better than
none. Eventually the ultimate results of predesigned collaborative mechanism may turn tragic to
victory for all sectors during next emergence of large-scale disaster in Thailand as well as all over the
world.

References

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[3] Philips, Neals, and Webb. Introduction to Emergency Management. CRC Press. Florida. USA.
2012.

[4] Damon P. Coppola. Introduction to International Disaster Management. Butterworth- Heinemann.

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ICPA 2014 International Conference on Public Administration (ICPA 10th )

USA. 2007.
[5] Lucien G. Canton. Emergency Management: Concepts and Strategies for Effective Programs. John

Wiley& Sons . New Jersey. USA. 2007.
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[7] Starling G. Managing the Public Sector. Grover Starling. USA. 2011.
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Management Consulting). USA. 2012.

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