Questions/Answers

The Council for Crisis Management (CCM) in the State of Pernambuco, is established as an intersectoral instance for responding to different crisis situations within the state. Its network format partners with federal government institutions, mayors, civil society and NGOs - considering that interventions in times of crisis need to be supported by various stakeholders or addresed at national, regional or local levels - according to the nature and extent of each situation. The CCM has operated in five major events of crisis since its implementation in 2010, striving to provide efficient governance of operations according to the short, medium and long term impacts of the crisis - which were so far: natural disasters (floods in 2010; 2017), socio-economic crisis (national strike and stoppage of truck drivers in 2018, known as the Gas Crisis), environmental disaster (spill of crude oil affecting Brazilian jurisdictional waters, reaching Pernambuco beaches in 2019 - origin of the oil spill is unconfirmed but stated to not be Brazilian), health pandemic (Covid-19 in 2020). The CCM is headed by the State Governor, and formed by his Cabinet, 8 Secretariats - and others, when invited - and partners with federal government institutions, mayors - establishing Municipalities Offices when needed – NGOs and civil society. Its mains objectives are i) to diagnose the nature, extent and impact of the crisis; ii) to provide quick response to most serious demages and losses – first and foremost, human lives; ii) to maintain delivery of and access to basic public services – specially to the most affected ones iv) to prevent the escalation of problems, v) to trace a plan - usually named as “operation” within the context of the CCM - to provide permanent solutions, thus preventing future recurrences.

The link to category 04 (Institutional preparedness and response in times of crisis) involves these elements: i)immediate assistance to those mostly affected (rescue of lives, shelter and food provision, safety alerts); ii)regular and consistent institutional response conducted in an integrated way with firm leadership and enphasis on monitoring to avoid isolated, non-coordinated actions; iii)guarantee of delivery of major public services in the midst of crisis, as proved in all events of crisis so far; iv)use of ICT tools, internet, databases and social media for internal purposes (monitoring, data collection, communication)as for external purposes (alerts, data, information on public services)

The CCM has potencial to contribute to most SDGs, due to its variety of possible actions. However, it has contributed mostly to SDGs 11, 16 and 17,as follows: i)SDG 11-targets 11.4, 11.7 and 11.7b– alligned with Sendai Framework for Disaster(guiding principles ‘c’, ‘e’ and ‘k’;‘priorities for action’ and ‘role of stakeholders’)- with the implementation of “Rebuilding Operation” and “Promptness Operation” which reconstructed destroyed cities, their historical sites, and moved families that used to live by the rivers to safer places, providing sustainable housing and raising families’ awareness since then;ii)SDG 16- targets 16.6, 16.7 and 16.10, with the launch of an online platform named ‘Covid-19 in data’ reaching an outstanding first position in OKBR data transparency ranking (OKBR- Brazilian Chapter of Open Knowledge International), being the first state in Brazil to launch a web panel and the only one remaining with high transparency evaluation throughout 11 weeks. The platform has helped public managers to face Covid-19, facilitating timely decisions, and helping society understand government recommendations to mitigate proliferation of Covid-19, through access to official data, available in a simple and transparent way, helping to combat fake news;iii)SDG 17- target 17.17, with its network strategy, allowing coordination and accomplishment of goals.

In social terms, the CCM needs to maintain its energy level to be sustainable: participants tend to lose energy and, depending on the type of crisis, become distrustful or discouraged; Its routines or goals achievements do not depend on alone on someone especifically – there is always a co-leader. During the pandemic, for instance, when both the Governor and the State Secretary for Health caught Covid-19, the activities still continued. As for environmental and economic sustainabillity, seeing from a different perspective, the initiave “promotes” economic and environmental sustainability through its actions in times of crisis.

Pernambuco has about 9 million people and is situated in one of the poorest regions in Brazil.In 2010, the state was going through a significant change in its management: historical non-adressed difficulties had caused persistent distrust from population and crisis were usually poorly coordinated, due to various factors -one being very low levels of strategic governance.The Governor and the Secretariat had then decided to coordinate efforts to break this cycle, such as investing in a selection process to hire permanent civil servants -Governmental Managers- to work in strategic areas: Planning, Budget, Internal Control, and Administration -and publishing a State Law establishing a Governance Model. This was the scenario regarding major governance, when, on June 17 and 18, 2010 heavy rains hit the Southern Area (SA) of Pernambuco: this wave of rains from the east reached the state and, in 24 hours, produced 70% of the rain expected for the entire month. The heavy rains in the headwaters of important rivers caused violent storms along these rivers banks, destroying entire cities. On June 17, 2010 the Governor implemented the CCM- operating 24/7. Since then, this network has consistently addressed 4 other major crisis and successfully endured all of them.

The CCM usually invites other Secretariats to join efforts during crisis, as the Secretariat for Women Public Policies.The Secretariat does weekly monitoring of indicators of violence against women and its Secretary is the head of Technical Forum for Women to promote women-oriented policies.During pandemic, the Secretariat improved its efforts for online orientation aimed at women safety and social protection programmes with the Secretariat for Social Assistance. There have been major efforts to guarantee Patrol-Guard visits, as homicides whose victims were women increased by 9% from Jan-Jul 2020, compared to 2019, proving that risk of gender-based violence is higher in crisis.

When situations of crisis strike, the main concern of the CCM is to save lives and guarantee basic human rights to the mostly affected people. All efforts are applied to guarantee water, food, electricity, health conditions, basic supplies and safety (mainly children, elderly, people with disabilities and women). When CCM managed the effects truck drivers stoppage in 2018, a peaceful joint operation between National and Local Military Forces was conducted to open blocked roads and have gas trucks moving, guaranteeing supply of cooking gas in various cities, services in hospitals, fuel to police vehicles and ambulances, regular delivery of lunches to schools and operation of buses. In 2019 when CCM dealt with a spill of crude oil that affected Brazilian jurisdictional waters, reaching Pernambuco beaches –an environmental disaster that affected economic actitivites of fihshermen and women who made their living from clam digging– it immediately approached the families for orientation regarding their safety and for conducting a diagnosis on financial losses. Then, articulated with Federal Government to guarantee financial support for families. Facing COVID-19, CCM prioritized improvement in Public Health Care System offering 1,569 ICU beds and 1,089 semi-ICU beds and installed 03 campaign hospitals in poor sub-regions cities.

The CCM was implemented on the evening of June 17, 2010, in the Government Headquarters, by a former Governor of Pernambuco, in response to Civil Defense Department allerts of rainfalls. He summoned the Rescue Forces to rescue lives and his strategic cabinet for an immediate response to that eminent disaster. Within the following two days he met with local mayors, federal ministers, State Military Forces, Federal Police and National Air Force officials and CHESF-electricity supply company, to discuss emergency actions. On July 1, 2010, the CCM was formally implemented (State Law nº14.105) along with the creation of a disaster budget fund-FECSEC, thus indicating the Governor´s decision to turn the council into a permanent network for crisis management. The Secretariat of Planning and Management-SEPLAG has co-managed and monitored the activites of the CCM since then, with technical support from its career Govenmental Managers. Not only does SEPLAG team monitor the delivery of major public services (education, health and security) during crisis, but also the activities of the CCM itself. SEPLAG interacts with CCM participating Secretariats to i)collect and provide data; ii)help define and monitor performance indicators; ii)prepare evaluation reports of the CMC activities; iii)authorize State Budget; iv)register meetings minutes; v)monitor meetings deliberations. Important recent development regarding CCM activities were the online meetings. The CCM usually disclosures as soon as the extent of the impacts of the crisis is reduced and the CCM “operations” reach a regular rhythm, and the Secretariat for Planning and Management consolidates the main data and produce an executive report.

One obstacle is not being expert enough to deal with each different type of crisis. Thus, partnering with experts, consultants and academics is crucial to orient strategic decisions. Another obstacle is the need for urgent decisions regarding government purchases, tax exemptions, or financial support for victims, in a context of strict laws and protocols.The CCM Internal Control Governmental Managers overcome this obstacle by accelaterating creation of laws, decrees, ensuring accountability and transparency. Finally, a team that communicates well, clearly and massively to target groups through press release and social media is crucial to combat fake news and orient the population.

The network the CCM establishes with stakeholders, especially with municipalities and their mayors - even in context of political disagreements - has increased the capacity to respond to crisis in Pernambuco. Besides, the creation of permanent careers for Governmental Managers in 2008 and the Governance Model Law in 2009 have somehow paved the way for establishing an efficient strategic governance system within the CCM. Another innovative aspect is its efficient intersectorial articulation within the government departments. Last, but not least, the use of social media with clear information regarding the crisis, proves consistency; these are elements that carry innovative traits.

Although the Governor knew about sucessful practices on crisis management from his experience in public administration and had theorical knowledge about it, the CCM drew its inspiration from the existing Governance Model, especially its practices in the “Pact for Life” program.This violence prevention program works in an intersectorial way and gathers Secretariats, as:of Women, of Social Assistance, Human Rights and Police Forces, along with stakeholders (Judiciary and Public Prosecutor's Office) at weekly meetings, for monitoring indicators and plans of prevention programs and crime repression operations, supported by intersectorial government Technical Forums– a network that meet for deeper analyses and proposals.

The CCM uses existing technology to operate– such as MS Excel spreadsheets, MS Power Point and the Government Dashboard– for basic controls and analyses. In recent years, has increased its digital presence in social media channels. In order to ensure broad access to open data during the pandemic, SEPLAG developed an open application source in "R", called “Covid-19 in data” (https://dados.seplag.pe.gov.br/apps/corona.html)with panel embedded in "Power BI" (free version). This analytical tool gathers data from secured sources to integrate international, national and local data about the pandemic, hospital beds and tests– providing population, academics and media with a safe information source.

The initiative was implemmented by the city of Recife, the capital of Pernambuco. The current mayor of Recife and part of his technical team took part in the CCM in 2010, thus adopting in Recife a similar reduced format, transferring, in 2018, the CCM methodology for crisis management at a municipal level. Since the Gas Crisis hit the country, the Emergency Council of Recife has played an active role in partnership with the State of Pernambuco.

The initiative is easily adapted ad has potencial to be promptly transferred due to its simplicity. However, it requires a firm and consistent leadership, capacity of articulation, engagement, efficient governance practices, such as monitoring of indicators and application of ICT solutions. The CCM is well established, benefiting from 10 years experience, since its first operation.

All resources were existing ones in Pernambuco. Human resources were acessible and the integration of participants was a very relevant element. Existing equipment - as printers, notebooks, cell phones, internet access, projectors, microphones, furniture - and basic infrastructure is available at the Government Headquarters that also offers car parking, security and its facilities acomodate well the teams and journalists - when they come for press conference. Every time a crisis strikes, there is the urgent need to produce communication material to communiate the network of assistance, by regular posts in social media.

Its institutional sustainability is firstly related to its capacity of adopting efficient planning and monitoring in crisis. Consistent methodology depends on efficient governance, on experienced players and on adequate technology usage. Secondly, political issues are usually set aside; otherwise they become a hindrance for the achievemnents of the CCM goals, interfeering in the operation of the network– mainly between the Executive, Judiciary, Deputy Parliament, Controllers Officers- or even international stakeholders. It is financially sustainable because it needs few resources to operate (travelling pays, lunches), although its actions can only be effective when enough financial resources are available to assist population.

Yes

SEPLAG evaluated the initiative using an interpretive approach.SEPLAG defined a series of indicators and analysed each operation of the CCM to identify where its processes met these indicators concluding with findings and recommendations.This methodology was more appropriate given the wide spectrum of the nature of crisis, what would make an objective approach difficult to establish. Considering the contingency theory (Fiedler,1964)in the sense that when it comes to crisis management, there may not a fixed way to conciliate environmental conditions and appropriate administrative techniques; an organizational methodology that is successful in some situations may need adaptations to be effective in others.

The following indicators were analysed in each of the five operations of the CCM in Pernambuco (2010-2020), to verify the success of the CCM to handle crisis situations in an effective way. The indicators were: Indicator 1: Brazilian formal classification (as disaster); Indicator 2: Decree of Emergency Situation ; Indicator 3: Decree of Public Calamity ; Indicator 4: Actions of Response ; Indicator 5: Damages Report ; Indicator 6: Actions of Rescue and Immediate support ; Indicator 7: Actions for Reestablishment of Essential Services ; Indicator 8: Planning of Permanent Actions; Indicator 9: Network with Stakeholders.

The CCM has shown to have played an active role in dealing with crisis in Pernambuco from 2010 to 2017. It was observed that this system is consolidated, having per passed two governments during this time. It has developed useful management practices such as planning and monitoring of actions– with the use of ICT tools– and improved communication with population, also through the increased use of social media.It has shown consistency in its operational system, mostly when it comes to leadership and partnering with stakeholders. It was observed that it has developed in quality, and has produced what is most expected from those who undergo a crisis: the return to normality. The CCM team shows to be fully aware of the importance of its operations, and has shown to be gaining experience from previous experiences, enabling the government to prepare for future crisis events. It is recommended that the CCM does not depend on the strength of the government itself, but should seek to improve technical preventive measures, especially when it comes to natural disasters; engaging efforts for investments in long term solutions is also very relevant in order to guarantee structuring actions and preventive actions to avoid future occurrences.

The Council for Crisis Management-CCM is inserted in the government context, being formed by its Secretariats and other Departments and participants – when invited – and applies a governance model similar to the one that has been adopted in the Government in a larger scale – with the use of monitoring systems, reading of indicators, plans of actions, ICT tools. In Pernambuco, since 2006 there has been a major program operating which focuses on violence and homicide prevention -based on Managing for Results methodology. Its intersectorial weekly meetings since then have counted on the active participation of the Judiciary, Public Prosecutor's Office and eventually with Federal Government representatives - such as ministers - governors and mayors. This model has been replicated to the CCM, thus positioning this Council in a very well recognized status, which has facilitated its interaction with these players that already have a consolidated partnership and participation within Pernambuco government.

The CCM is officially formed by 8 State Secretariats, headed by the Governor, and has counted on the collaboration and engagement of various stakeholders during the implementation and evaluation of its actions. In 2012, the World Bank offered the Government of Pernambuco an extensive evaluation report on damages and losses caused by the heavy rains in 2010, mentioning the network implemented by the CCM and the work of its “Rebuilding Operation”; Another significant stakeholder has been the Federal Government which invested R$ 4,3 million to help rebuild destroyed cities in 2010, and sent initial R$ 17,55 million for food in 2017. The Association of Municipalities of Pernambuco-AMUPE helped coordinate efforts for gas delivery during the strike and stoppage of truck drivers in 2018; local volunteers were engaged in cleaning the beaches in 2018 –sometimes even without the knowledge of technical authorities. Federal Government also gave financial assistance to fishermen and the Clam Digging Womens´Association in 2019 as well as to low income Brazilian workers during the Covid-19 pandemic; last but not least, churches, NGO´s, civil society and large enterprises, such as Coca-Cola and Unilever, have partnered during times of crisis donating food, bottles of water, blankets and medical supplies.

The first key lesson observed is the importance of a commited working atmosphere inside the CCM: a firm but encouraging leadership, personal engagement, teamwork, articulation for establishing a network, and positive attitude of hope, are essentials. It is also priceless seeing the leaders engaged in visiting the´crisis spots´ and hear the stories. Another lesson learned is the need for coordinated technical efforts; initial diagnosis are usually frustrating due to lack of information and designing action plans may be confusing: bringing experts for discussions and having career civil servants perpetrating good practices has been highly relevant to CCM modus operandi; another lesson is regarding paralell findings- which should always be sought: during Covid-19 pandemic, it was clear the urgent need for certain investments: online classes could not reach all public school students– many of them had no connection to the internet nor a computer. These paralell findings are not necessarily consequence of the crisis, but revealed by the crisis. Lastly, crisis management is not only about here and now: it is a chance for government reflecting on priorities and deciding on what public policies to sow now for future reaping. These fruits are to reduce innequalities and favor the most vulnerable.