Principles Of Emergency Planning
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Transcript of Principles Of Emergency Planning
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Principles ofEmergency Planning
David AlexanderUniversity College London
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Emergency planningis not
rocket science...
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...it's a matter of common sense...
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...and organisation!
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The essence of disaster management:-
To tackle pressing needs withmaximum efficiency and speed butwith scarce resources and in theabsence of necessary information
BUT emergency planning is a young field that lacksinternational consensus on standards, procedures,the legal basis and institutional arrangements.
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Major eventmanagement
Incidentmanagement
Population(community)protection
Hazardforecasting,monitoring,etc.
Plans,procedures,protocols
Human andmaterialresources
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Emergencyenvironment
Emergencyprocedures
Emergencyco-ordination
plan
Spontaneousimprovisation
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The need for emergency planning:
• a serious lack of trained personnel,materials, equipment and time
• decisions must be made rapidly
• information is a prime need
• inefficiency in disaster planningmeans avoidable damage and casualties
• emergency assistancecannot be well improvised.
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The main objective of the plan is toinform, instruct and direct participants
about what procedures andemergency resources to use.
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13 principles ofemergency planning
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Principle no. 1
In an emergency the theatre ofoperations is always the local area.
Local organisation and emergency planningare fundamental and indispensable.
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QU
AN
TIT
Y
TIME
needs
local self-help
imported assistance
unmet needsReduce unmet needs
Increase local self-sufficiency
Rationalise imported assistanceand make it more timely
The challenges of emergency planning
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Volontarysector:
support andintegration
Privatesector:
integration
Disaster
Municipality or other local authority: emergency operations
Province, region, state, county:co-ordination, assistance
Nation: policies ofcompatibility, harmonisation
and co-ordination
International:exchange and support
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A hierarchyof emergency
plans
Micro-emergency
Disaster orcatastrophe
Macro-emergency
Meso-emergency
Singlemunicipality
Severalmunicipalities
Regionalcoordination
Nationalcoordination
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Microemergency: natural oranthropogenic events that canbe tackled using the resourcesand managerial skills of a singleorganization or authority without
major changes in procedures,materials and manpower
Catastrophe: natural,technological or social
disasters that are largeand serious enough torequire extraordinary
measures which are beyondthe scope of local and many
regional authorities toprovide and direct
Macroemergency: naturalor anthropogenicevents that are large enough to requireconcerted action by more than one authority or organization
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Local incident Local response A
Threshold of local capacity
Small regional
incidentCo-ordinated local response B
Threshold of intermunicipal capacity
Major regional
incident
Intermunicipal and
regional responseB
Threshold of regional capacity
National disaster
Intermunicipal, regional
and national responseC
Threshold of national capacity
International
catastrophe
Ditto, with more
international assistanceC
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Aid from outside the disaster area shouldreinforce, not replace, local initiatives.
Main objectives: develop a state of localself-sufficiency and maintain public order.
The bedrock level is the local authority:higher levels of government should supportand harmonise local emergency responses.
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Principle no. 2
In emergency planning efficiencyis measured in terms of lives savedand damage avoided or contained.
supply
demand
timeDisaster
supply
demand
time
urban
SAR shortage
Disaster
shortagereduced byefficient
mobilisation
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Principle no. 3
The most efficient emergency preparednessinvolves generic, all-hazards planning.There should be only one plan and it
should be written in clear, simple language:ambiguity can be dangerous.
Synthesis:abbreviated
plan
Details:data,
annexes,appendices
Generalised Detailed
Plan:structure
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SUDDEN-IMPACT DISASTER OCCURS
TOWN CENTRE
MUNICIPAL EMERGENCY
OPERATIONS CENTRE
- in the Town Hall
ASSEMBLY POINTS
AND AREAS
----- Building
----- Street
----- Square
----- Street
----- Building
----- Square
Immediately
the crisis
beginsTHE MAYOR
- goes to the Emergency Operations Centre
- makes contact with the regional authorities
- sends personnel to assembly areas
EMERGENCY SUPPORT FUNCTION DIRECTORS
- go to the emergency operations room
EMERGENCY SUPPORT FUNCTION OPERATORS
- go to the emergency operations centre and
follow the orders of the Mayor
MUNICIPAL WORKERS
- Group A meets in --------- Street in front of Town Hall
- Group B goes to the principal assembly area
VOLUNTEERS OF THE "----- GROUP"
- take control of the assembly areas
THE POPULATION
- is led to the public assembly areas
THE MUNICIPAL POLICE FORCE
- takes control of key points in the centre of town and
directs the population to the assembly points
- sends situation reports periodically by radio
to the emergency operations centre
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Principle no. 4
An emergency plan is an instrumentthat is best created and maintainedby a qualified emergency plannerand is usually best housed in an emergency operations centre.
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Principle no. 5
The plan should be clear aboutwhere, when and to whom it applies.
It should specify thelimits of its jurisdiction.
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Principle no. 6
The plan should conform to regional,national and international laws on civilprotection, environmental management,
health and safety, and so on.
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Principle no. 7
Plans should be compatible between levelsof government, sectors and functions.
Plans should be integrated for governmentagencies, hospitals, industrial sites,airports, commercial concerns, etc.
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NATIONALEMERGENCY
PLAN
REGIONAL ANDCOUNTY ORPROVINCIAL
EMERGENCY PLANS
MUNICIPALEMERGENCY
PLAN
MUTUALASSISTANCE
PACTS
AIRPORT ANDTRANSPORTEMERGENCY
PLANS
HOSPITALAND HEALTH
SYSTEMEMERGENCY
PLAN
INDUSTRIALAND
COMMERCIALEMERGENCY
PLANS
CULTURALHERITAGEEMERGENCY
PLAN
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Disaster inthe medical
centre
Disaster inthe externalenvironment
Disasterin the systemof medicalcentres
Disasterplanning forthe medical
centre
Disasterplanning forthe externalenvironment
Disasterplanning forthe medical
system
CoordinatedEMS Disaster
plans
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Functionaldivisions:government,healthcare,commerce, etc.
Hierarchicaldivisions:national,regional,local, etc.
Geographicaldivisions:catchments,jurisdictions,areas, etc.
Organisationaldivisions:police, fire, ambulance,etc.
Divisionand
integration
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Principle no. 8
The plan should focus on saving lives andreducing damage by matching urgent needs
with appropriate available resources.
Realism is necessary in emergency planning:it is wrong to plan to use resources
that are not available.
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Principle no. 9
Plans should be based on referencescenarios of what is likely to happen.
Scenario methodology involves rigorous,formal investigation of probable chains ofdamaging events, plus their consequences
and what actions will be needed.
Emergency planning should be aboutprocesses, not merely numbers.
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evolution
developmentof thescenarioevolution
timezero
formal evaluation of theoutcome of the scenario
consequencesat time n
Scenariomethodologyin emergency
planning
consequencesat time 2
consequencesat time 1
referenceevent
initialconditions
evaluation ofthe progress
of the scenario
historicalanalysis
hypotheticalingredients
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Likely event:use referencescenario
Planning:
Improbable event:use genericprocedures
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Cascading effects
Collateral vulnerability
Secondarydisasters
Interaction between risks
Climatechange
Probability
Indeterminacy
"Fat-tailed"distributionsof impacts
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How did this...
Emergency planning forwhat magnitude of disaster?
...become this?
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SMALL SMALL
LARGE
Physicalimpact
Humanconsequences
LARGE
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Pedestrians only
Cordon III for traffic
control Multi-agencyoperationscommand.
Publicassembly area
Rescuers'assembly point
Points ofaccess tocordonedoff areas
Onlyrescuers
Cordon I
Only authorisedpersonnel Cordon II
Incident
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Bronze - operations
Silver - tactics
Gold - strategies
[Diamond - policies]
UK: 3 commands, 4 levelsPolice - Fire Services - Medical Services
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LEAD GOVERNMENT DEPARTMENT
Media
Centre
Media
Liaison
Point
Temporary
Mortuary
Survivor
Reception
Centre
Receiving
Hospitals
Relatives’
Reception
Centre
Local Authority
Emergency Centre
Strategic Co-ordinating Group
Police Local authority
Fire Military forces
Ambulance Government advisors
Other agencies
Strategic
level
Voluntary
Agencies
Casualty
Bureau
Public
enquiries
OUTER
CORDON
Body
Holding
Area
Ambulance
Loading
Point
Casualty
Clearing
Station
Vehicle
Marshalling
Area
Incident Control Point
Police
Fire
Ambulance
Liaison
Tactical
level
INNER CORDON
Site of Disaster
Police
Fire
Ambulance
Specialist advisors
Operational
level
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Time
Resp
onse
Emergencyisolationphase
Majorincidentdeclared
Consolidationphase
Recoveryphase
Investigation
Stand-down
FuneralsDebriefings
AnniversariesPlan revision
InquestsPublic enquiries
TrialsAwards
MemorialsTraining
Court cases
Anatomy of a major incident
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Locus ofcontrol
Locus ofcollaboration
(support)
Tension ofopposites
Commandfunctionprinciple
Supportfunctionprinciple
Spectrum ofalternatives
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Two models of organisationof civil protection services
Command function principle: allocatingtasks according to level and objectivesof decision-making (strategic, tactical, operational).
Support function principle: allocatingtasks according to functional sector(e.g. communications, logistics, utilities).
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Principle no. 10
The emergency planner shouldconduct a census of resources
available for managing crisis situations.
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Construction of operationalscenarios of hazard, risk, impact
and emergency response
Existence of various statesof hazard and vulnerability
Census ofavailable resources
Plan of action foremergencies
Proc
ess
es
of c
onst
ant
adapt
ation
of t
he p
lan
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Principle no. 11
Planning is about ensuring that everyparticipant has a valid role in the
emergency response and is aware of theroles of other participants, especially
those from other organisations.
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The essence of emergency managementis to be able to appreciate what other
agencies are doing or are expected to do.
This requires a common language and acommon culture: it also requires goodinter-organisational communication.
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Broad professional training in emergency management
Professional experienceand training
Disciplinary training(e.g. bachelor's degree)
Commonculture
Commonlanguage
Commonobjectives
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Principle no. 12
The emergency plan should apply to allphases of the 'disaster cycle' and shouldaim to provide sustainable civil protection.
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Sustainable emergency management:-
• is centred upon the local level(but is harmonised from above)
• has the support andinvolvement of the population
• is based on plans that are fullydisseminated and frequently revised
• is a fundamental, every-day servicefor the population and is taken seriously.
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Principle no. 13
An emergency plan should be a livingdocument that is widely disseminatedand frequently tested and revised. It
should be the property of all participants.
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Anatomy of an emergency plan
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The emergency planning procedure:-
• research: carry out initialstudy and collect data
• writing: create a plan,appendices, annexes
• publicity: make the planknown to all participants
• operations: test the plan with fieldexercises, simulations, scenarios
• updating: revise the plan.
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Fundamental components of the plan:-
• resources
• structures and organisations
• networks
• procedures
• tasks assigned.
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Local emergency resources:-
• personnel and manpower
• vehicles and heavy plant
• equipment
• materials, consumable supplies, fuel
• institutions and organisations.
• services
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Other emergency resources:-
• mutual aid pacts and agreements
• regional and national resources.
• military assistance tocivil communities (MACC)
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Basic elements of the emergency plan:
• the participating organisations
• command structures
• communications channels
• emergency response procedures.
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The ingredients of an emergency plan (1):
• explain the problem
• scenarios of hazard, vulnerability,risk and impact
• inventory of available resources
• command centres and support functions
• describe monitoring, prediction andwarning systems and procedures.
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• assign tasks to emergency workers
• communications protocols and procedures
• procedures for various eventualities(breakages, interruptions andunexpected problems)
• training and education initiatives.
The ingredients of an emergency plan (2):
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Conclusions
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Revision
Exercising Evaluation
Activation Disaster
Preparatory study
Dissemination Information
Creation andupdatingof plan
Stakeholders'opinions Training
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Apparentchaos
Result
Feedbackand revision
Feedback
and
revision
EvaluationTesting
Disaster
Plan
Model
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ResultsOperations
Procedures
Plans
Policies
Command systems• operations centres• task forces• communications• chains of command
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Incident
Contingency planning inthe pre-emergency phase (days)
Emergency responseplanning
Permanent emergency plan
Operational planning
Short-term strategicplanning (hours → days)
Short-term tacticalplanning (hours)
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Recovery andreconstruction
planning
Strategic,tactical & operationalplanning
Aftermath
Disaster
Monitoringprediction& warning
Permanent emergency plan
Business continuity plan
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Emergency planning and managementshould be
fully programmed activitiesbased on a good estimation and accurateknowledge of probable needs, but with
improvisationto cope with unexpected developments:
we must reinforce the plannedactivities and reduce the improvisation.