Hostage Negotiation and

Crisis Management

MELVIN T DUQUILLA
CRISIS/DISASTER
MANAGEMENT

MELVIN T DUQUILLA

2
A Review on Crisis Management:

 Theories of Crisis Management

 The Conflict Management Model
 The 4P Management Model
 The CM organizational structure
 Procedures/Actions during crisis

3
Crisis
- comes from the Greek word crisis
which means to separate

- Webster describe it as . . .
. . . An unstable or crucial time or
state of affairs in which a decisive
change is impending; a situation
that has reached critical phase.

PNP HN Training Team 4

 What is Crisis ?

“Crisis is a crucial event or

situation requiring a special response
to assure an acceptable solution”5
 CRISIS
A dangerous or critical moment of
development.

EMERGENCY

Sudden condition or state of affairs

calling for immediate action.
DISASTER
- is simply something that happens suddenly,
usually without warning, causing much
suffering and loss.
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Crisis is
Characterized by:

 Time Compression
 Necessitates rapid response.
 Necessitates
unexpected response
 Normal activities carry on

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Crisis is
Characterized by:

 Threats to
- Life
- Property
- Reputations
- Relationships
- Operations
 Demands Accurate and
Risk Effective Action
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Crisis Needs . . .
 Organizational Structure
Different
from Organizational Standard

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Crisis Needs . . .
• Management System that Facilitates
Decision Making Process

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 Crisis Needs . . .
• Special Analysis, Planning, and
Implementation of Crisis Response
Plans and capabilities. .

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Finally . . . .

Crisis Needs

 Special and Specific Legal

Considerations
 Special and Specific Response to
Media, Public
 Special Emphasis of Identifying
Victims
◦ Actual
◦ Perceived
◦ Extended

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References
 Crisis Management Manual (Nov
2000)

 National Plan to Address Terrorism

and Its Consequences

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 Two types of Crisis

MAN-MADE NATURAL

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Man-Made Crisis/Emergencies

1. Civil Disturbance
2. Revolt
3. Revolution
4. Border Incident
5. War
6. Kidnapping
7. Hijacking
8. Hostage-Taking
9. Terrorists Activities
10. Attacks/Raids on government
installations/ vital facilities.

PNP HN Training Team 15

Natural Crisis/Emergencies
 Fire
 Marine/Air Disasters
 Structural Collapse
 Hazardous Spills
 Utilities failure (Power, Water, Telephone)
 Nuclear Accidents
 Food scarcity/famine
 Fuel shortage
 Pestilence/epidemic
 Floods
 Volcanic Eruption
 Earthquake
 Typhoons
 Drought
PNP HN Training Team 16
 CRISIS MANAGEMENT
Refers to measures to identify, acquire,
and plan the use of resources needed to
anticipate, prevent, and/or resolve a crisis,
disaster, threat to public safety or act of
terrorism.

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 Executive Order 320
 Mandates the National Peace and
order Council to create Crisis
Management Committees (CMC) at
all levels

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Organization of National CMC
 Chairman - Secretary DILG
 Members - Secretary DND
Secretary DSWD
Secretary DOJ
Chief, PNP
Chief of Staff, AFP
Other concerned cabinet
members

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Relationship of POC and CMC

Provincial PPOC
CMC

City/Municipality CMPOC
CMC

Barangay BPOC
CMC

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 Local Chief Executives’ Dual Role

Chairman of the local government Crisis

Management Committees (CMCs)

Chairman of the Local Disaster

Coordinating Councils (LDCCs)

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 FUNCTIONS of the CMC

 Formulate crisis management procedures

 Integrate and orchestrate actions to prevent and
control crisis incidents
 Address crisis situations arising from peace and
order and internal security concern

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Composition of Lower Level CMC

 Lower level CMC is a replicate of National CMC

 Lower level CMC is composed of

- Political leadership
- Military/Police
- NGOs

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DELINEATION OF RESPONSIBILITIES

Natural calamities and disasters shall be

the responsibilities of the National Disaster
Coordinating council (NDCC).
Terrorist-based crisis/emergencies on the
other hand will be the responsibility of the
National Peace and Order Council (NPOC)
Lower level organizations of the NDCC
and NPOC shall likewise be organized.

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4P Crisis Management Model
Proactive Phase – designed to predict or
prevent the probability of occurrence of crises at the
same time prepare to handle them when they occur
 Prediction
 Prevention
 Preparation

Reactive Phase – the actual execution or

implementation of any contingency plan when a crisis
situation occurs despite the pro-active measures
• Performance
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 PREDICTION
Foretelling the likelihood of crisis, through:

 Continuous assessment of all possible threats and

threat groups.
 Analysis of developing or reported events and
incidents.
 Updated inputs from intelligence reports

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 PREVENTION

 Institution of passive and active security measures

 Remedy or solution of destabilizing factors or security
flaws to such crisis or emergency
 Vigilance and alertness to signs or manifestations of
developing crisis or emergency
 Establishment of alert systems

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 PREPARATION
Pre-CRISIS actions and measures undertaken to
avert or minimize loss of lives and properties:
Community organizing,
Training,
Planning,
Stockpiling,
Hazard mapping,
Public information and education initiatives
Simulated drills
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 PERFORM
 Initial Action
Securing the scene
Establishing perimeter security
Evacuating innocent civilians
Preventing escape of perpetrators
 Action It begins as soon as the On-Scene Command
Post (OSCP) is established and the Tactical Intervention,
Service Support Units, Negotiation Team and Public Affairs
personnel arrived and are deployed
 Post Action Begins as soon as the perpetrators
surrender, or when they are captured or neutralized and the
crisis situation is deemed clear.
Restore normalcy and bring responsible to court
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 CRISIS INCIDENT MANAGEMENT
(Three Lines of Defense)

A. INTELLIGENCE

B. TARGET
HARDENING

C. CRISIS
MANAGEMENT

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 “ To know the enemy and
identify their potential targets ”
 Identification of potential terrorist targets
 Identification of terrorist organization/profile
 LGEs to organize their own intelligence collector
 Surveillance and records/document exploitation
 Pre-emptive strikes on lairs
 Manhunt and arrest of terrorists
 Establishment of communication linkages with
community
 Public awareness and Education on the Terrorist
and the Bomb
 Intelligence sharing and fusion with other agencies
 Designation of Security Officer
 Monitoring of ports of entry and foreigners in the
country
 Text messages, TELECOMS and Patrol 117
 Making it difficult to terrorist
to succeed in their targets ”

 Enhance physical and personnel

security measures
• Deployment of PNP/AFP scty
personnel
• Enhancement of technological
eqpmt
• Conduct of scty survey and
inspection
• Strengthening of physical scty
measures
• Development of security
consciousness
 Conduct rehearsals/drills/dry runs
 Convene the CMC
 Review and implement IA/CPSP
 Designation of Incident Manager and
orgn of Crisis Mgmt team
 Community partnership
 “ To manage effectively the
incident and mitigate the effects
of the terror attack ”

 LGEs will take the lead role

 Activate Crisis Management Team
 Activate CMC
 Activate On-Scene Command Post
 Secure and render safe the blast site
 Evacuate and provide first aid (MEDEVAC Plan)
 Investigate, gather evidence and arrest suspects
 Establish commo linkages
 Manage information (Media Relations)
 Manage augmentation and assistance
 Traffic and crowd control
 Put out fires
 Trauma management
 Important
“During times of confusion and
chaos, the first thing those people who
were affected want to see is a quick
government response that would bring
back normalcy in the least possible
time”

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 More important

“A quick government response to

critical incidents can only be attained if all
those who are involve know and
understand their role in the over-all plan”

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BASIC QUESTIONS THAT SHOULD
BE ANSWERED…

Who is in charge?
Where is the operations center located?
What will the method of
communication be?

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DETERMINE LOGISTICS REQUIRED

- Coordination with outside agencies

- Who has equipment available on short notice?
- Who can contribute to resolution?

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ACTIONS DURING CRISIS
1. CONTAIN the incident
2. ISOLATE the affected area
3. EVACUATE person at risk
4. APPROPRIATE POLICE ACTION
5. RESTORE NORMALCY/REHAB

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 CONTAINMENT
First response procedures
Identify & locate the incident
Identify immediate extent and potential risk
of the problem
Secure the scene & establishing perimeter
security
Monitoring the progress of the incident
Establish an Operation Center
Establish On Scene Command Post

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ISOLATE THE IMPACT AREA

Establish a security zone

Identify access for each CM Components
Monitoring the progress of the incident
Gathering of information
Clear areas for possible evacuation

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 EVACUATION

Evacuation procedures
Establish triage area
Management of Casualties
Identify temporary mortuary area

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Thank you and Good Day

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 POCs
CMCs

Ground Commander

NEGOTIATION OPERATIONS SERVICE SUPPORT PUBLIC AFFAIRS

GROUP
GROUP GROUP GROUP

INVEST/LEGAL
NEGOTIATION SECURITY TEAMS PUBLIC INFO
TEAM ELEMENTS TEAM
INTEL TEAM
LIAISON TACTICAL MEDIA CONTROL
TEAM ACTION/ TEAM
INTERVENTION MEDICAL TEAM
ELEMENTS
CIVIL RELATIONS
COMMEL TEAM TEAM
UTILITIES
LIAISON TEAM
FIRE-FIGHTING

LOGISTICS
TEAM

ADMIN TEAM
 Ground Commander

 Ground Commander may be designated from

the officials of the PNP or any officer in the
locality.

 Criteria for choosing OSC

- Nature of the incident
- Gravity of the incident
- Possible implications of the incident
RESPONSIBILITIES OF THE
GROUND COMMANDER
 Responsible for everything at the crisis
scene.

 Exercise direct command and control over

crisis management, service support etc..

 Communicate and clear all actions and

decisions, if necessary with the CMC
 OVERVIEW ON
HOSTAGE NEGOTIATION
Hostage Taking – the unlawful taking of a person
against his will and used as a bargaining chip in
order to meet the demand of the suspect.

Hostage Negotiation – the art of communication

with a person in crisis, the primordial objective of
which is to save lives.

Hostage Negotiator – the spokesperson for the

police/government who is directly engaged in talking
with the suspect.
Why are Hostages Taken?
WHY
NEGOTIATE
AT
ALL
“Negotiation is the preferred option
for the resolution of high risk
situations. The aim is to achieve a
peaceful resolution to a situation
without loss of life, injury to any
person, or damage to any property.”
OBJECTIVES OF NEGOTIATION

 Release of Hostages
 Arrest of Hostage-Takers
 Minimize Harm / Prevent damage
Other objectives of NEGOTIATION

 Intelligence gathering
 Assault preparation
 Establishing routine
 Rapport and stability building
 Explaining police activity
CATEGORIES OF HOSTAGE TAKERS

 Terrorists
 Criminals
 Inmates
 Mentally Deranged Persons
FACTORS AFFECTING THE NEGOTIATION PROCESS

1. Untrained Personnel
2. Time
3. The Negotiation Team
4. The Negotiations Area
5. Containment and Control
6. Controlling Utilities
 Common Problems in Negotiation

• Lack of Training in Incident Management

• Negotiations Without Trained Negotiators
• Kibitzers
• Media
• Information Security
• Equipment
• Perimeter Control, Inner Cordon
• Development of Plans
• Intermediaries/Interpreters
GROUND COMMANDERS

COMMAND

NEGOTIATORS

NEGOTIATE
 “There’s no absolute negotiations
process since each incident takes
place on its own…”
 NEGOTIATORS IN THE COMMAND
STRUCTURE

INNER CORDON

STRONGHOLD

OUTER CORDON
 Negotiation Team Structure

 Team Leader/Coordinator
 Primary Negotiator
 Secondary Negotiator
 Intelligence/Recorder
 Boardman
 ROLE OF THE TEAM LEADER

 Team leader
 Selection of team
 Location of cell
 Method of negotiating
 Deployment of Interpreter/ Intermediary
 Translating Incident Commanders strategy
into negotiating reality

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 Primary Negotiator

 Actively engaged in talking with the hostage

taker

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Secondary Negotiator

 Supports the No.1

 Ideas
 Silent running
 Active listening
 Safety

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Intelligence Negotiator

 Link with the outside world

 Passes on important information
 Supports the No. 1 & No. 2
 Maintains a log

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Boardman

 Board person
 Maintains all visual displays

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Boards (headings).
Demands Plans:
Deadlines Delivery
Hostage Taker(s) Surrender
Hostages. Break out
Positive Police Action Hostage Reception
Intel gathered
Things we need to know

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 Recap of Roles
 No. 1 - Talks.
 No. 2 - Supports.
 No. 3 - Communication link & Log.
 No. 4 - Boards.
 Co-ordinator - Team leader.

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Boards (headings).

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COMMUNICATING WITH THE
STRONGHOLD

 Face to face through the door

 Loud hailer
 Telephone
 Cellular telephone
 Field telephone
 Radio
 Internet
CHANGING BEHAVIOUR THROUGH NEGOTIATION

BEHAVIOURAL
CHANGE

INFLUENCE

RAPPORT

EMPATHY
ACTIVE
LISTENING
SKILLS
Systems and Strategies
NO PRECISE RULES AS EACH SIEGE /
INCIDENT IS DIFFERENT

therefore . . . .

Negotiators must be flexible in their

application of the basic techniques for
negotiation.
 PREPARATION BEFORE VOCALIZATION

WHAT THE NEGOTIATOR NEEDS TO KNOW

 Details of what has happened

 All about:
◦ The situation
◦ The stronghold
◦ The hostages
◦ The hostage takers
The situation

What has occurred?

Who initiated the call?
What was the time of occurrence?
What about the
Stronghold?

List it down . . . . .
 THE STRONGHOLD
Any place or vehicle from which police are
excluded or from which demands are made

 Where?
 Static or mobile
 What can we see?
 What can they see?
 Are we safe - what are
the conditions?
 Are they safe - what are
their conditions?
How about the
Hostages?

List it down . . . . .
 THE HOSTAGES
THEIR LIVES IN YOUR HANDS

 How many? Who are they?

 What, if any, relationship with the hostage
takers?
 Age, sex?
 Physical and mental health?
 Where in the stronghold?
How about the
Hostage takers?

List it down . . . . .
THE HOSTAGE TAKERS
(Sometimes there are no hostages)

 How many?
 Who?
 Why - deliberate or accidental
 How?
 How armed?
 Where in the stronghold?
 External support?
VOCALIZATION

 Introduction of yourself as the Negotiator.

 Seek his or her name and DO NOT FORGET IT.

 Maintain high level of credibility.

 Convey that the aim of the Negotiation is

the peaceful resolution of the situation.
 Never Interrupt the HT, Keep him talking

 Do not argue with the HT, know the “hot

buttons”

 Messenger of your Boss and the HT

 The use of interpreter and intermediary
 Operate from a position of strength
 Do not offer suggestions

 Pay minimum attention to hostages

 Capitalize on sickness

 Confine the suspect to the hostage scene

 Be attentive to the spoken and unspoken

needs of the HT.
 Give hints for a workable demand

 Use Open-ended Questions

 Make use of the “down time”

 Paraphrase
 Talk through deadline
 Do not impose self deadline
 Make the HT work and bargain for whatever
is acquired.
 Think “INTELLIGENCE” Do NOT talk when
you should be LISTENING!

 Maintain dignity of the Hostage Taker

 Avoid the use of the words: “Surrender”,

“Demands”, “Hostage”, and other police lingo

 Do not be afraid to ask questions.

 Seek to clarify the meaning of any statement.

 Allow passage of time
Increase basic human needs
Increases rationality
Reduces anxiety
Intelligence gathering
Increases opportunity for:
Escape
Bonding (Stockholm syndrome)
Resources to be assembled
Detailed planning
External and internal intelligence gathering
 On demands and deadlines…
“Take them seriously yet don’t be
overly concerned..”

Don’t: Do:
Seek them Refer to the Incident
Ignore them Commander
Say “Yes” to them Explain difficulties
Say “No” to them Reduce expectations
Misunderstand them Think tactically
Call them “DEMANDS” Seek reciprocation
Negotiable and Non-Negotiable Concessions

NEGOTIABLES NON-NEGOTIABLES
Food
Non alcoholic drinks Alcoholic drinks
Money Supply of weapons
Freedom for hostages Release of prisoners
Transport Civilian negotiator
Publicity Exchange of hostages
Light
Medicine
Water
EXCHANGE OF HOSTAGES SHOULD NOT BE ALLOWED

The promised exchange may not occur, leading to an

additional hostage and nothing in return.
An “authority figure” may be in greater danger than the
original hostage.
May be seen as a prestigious target
May be seen as a threat
May take hostile action
The intended target or the intended audience of suicide
Exchange may interfere with the Stockholm Syndrome.
The motives for exchange are unknown

AN EXCHANGE IS A SIGNIFICANT CONCESSION WITHOUT CERTAIN BENEFIT

THREATS TO KILL OR HARM

 Injury is totally contrary to peaceful resolution.

 Injury will have an adverse effect upon
negotiations
 Injury could affect progress with the demands.
 Injury will remove any sympathy for the “cause”.
 Injury will bring bad publicity
 Victims are innocent
 Victims should not be punished for problems
outside the stronghold
 NEVER challenge a threat to be carried out.
YOU ARE THE ONLY PERSON WHO CAN
PREVENT SERIOUS INJURY BY PERSUASION
Our Goal is to bring them to the TABLE Not
to their Knees!
 STOCKHOLM SYNDROME

ABOUT BONDING AND TRANSFERENCE

HOSTAGES AND HOSTAGE TAKERS (BONDING)

HOSTAGE TAKERS AND NEGOTIATORS

(TRANSFERENCE)
 THE STOCKHOLM SYNDROME:
The Bank Robbery

• August 23, 1973, Sveriges Kreditbank in

Stockholm, Sweden,

• lone gunman

• During the 131 hours from August 23, until

August 28, four employees of the Sveriges
Kreditbank were held hostage.
MANAGING DIRECT COMMUNICATION

THE USE OF INTERMEDIARY AND

INTERPRETER

Negotiating through a third person

Do not lose control. Brief in detail.

THE PROBLEM

NEGOTIATOR

HOSTAGE TAKER
 THE PROBLEM

NEGOTIATOR

INTERPRETER

HOSTAGE TAKER
 THE PROBLEM

NEGOTIATOR

HOSTAGE
SPOKESMAN

HOSTAGE TAKER
 THE PROBLEM

NEGOTIATOR

INTERPRETER

HOSTAGE
SPOKESMAN

HOSTAGE TAKER
 SELECTING
NEGOTIATOR AND
KEY SKILLS
 Selecting a Negotiator

Qualities of a Negotiator

Physically and mentally fit

Mature
Good verbal skills
Persuasive
Good listening skills
 Qualities of a Negotiator

A committed volunteer
A team player
Credible
Broad Understanding
A lot of patience
Appearance of the Negotiator
Body Language
Hostage Negotiation Team should encompass both
male and female members, a wide age group and, a
variety of ethnic backgrounds
COMMUNICATION
The SENDER
The MESSAGE
The RECEIVER

Words count for about 7% of a speakers efforts

Voice counts for about 38%

DELIVERY, APPEARANCE AND BODY

LANGUAGE COUNT FOR 55%
COMMUNICATION – Is not all about
YOU talking and THEM listening.
It is 50% or less for you and 50% or
more form them. Listen when they are
speaking.
Strong listening skills make YOU a more
powerful communicator.
Social Influence Theory

• People are more likely to comply with someone

they view is:
willing to listen
understanding
worthy of respect
and non threatening
PEOPLE GENERALLY:
• Show deference to authority
• Accept acts of kindness
• Reject attacks on friends
• Have a need for security
• Welcome reassurance
OPEN ENDED QUESTIONS

WHY?
WHEN?
WHERE?
HOW?
WHAT?
WHICH?
WHO?
WHOSE?

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 Measures of Negotiation Progress
1. No injury or violence since negotiation started.
2. HT’s voice lower and more rational.
3. HT’s speaking more slowly.
4. Decrease in the frequency of threats or violence.
5. HT talking for longer periods of time.
6. HT talking more about personal issues.
7. HT speaking about the hostages as people.
8. Hostage Release
9. Deadlines passed without incident.
10. Exchanges occurred without incident.
11. Rapport developed between the HT and the
Negotiator.
 Indicators of Pending violence

1. HT’s who insist on Face to Face Negotiation

2. Weapons tied to the subject
3. Multiple weapons
4. Excessive Ammunition
5. Negotiations become more volatile
6. Multiple HT’s who change communicators
7. Dehumanization of Hostages
8. Hostile Hostages
9. Targeted Hostages
10. Unclear, Outrageous or changing demands
 HOSTAGE TAKING AND KIDNAPPING MOVIES

Metro Chaos
Don’t Say A Word Inside Man
Ransom FBI Negotiator
Proof of Life Kidnapped
Dog Day Afternoon Man on Fire
Along Came a Spider The Negotiator
Hostage
Stand Off –Crime Suspense
End of Presentation