THE EMERGENCY PROGRAM MANAGER - Baha'i Studies · 2012. 6. 11. · THE EMERGENCY PROGRAM MANAGER...

INDEPENDENT STUDY COURSE

THE EMERGENCY PROGRAMMANAGER

Federal Emergency Management AgencyEmergency Management Institute

THE EMERGENCY PROGRAM MANAGER

Table of Contents

Table of Contents

Course Overview............................................................................................................i

UNIT 1: COMPREHENSIVE EMERGENCY MANAGEMENT ................................... 1-1

Introduction ............................................................................................................... 1-2

What is Emergency Management? ........................................................................... 1-5Phases of Emergency Management .................................................................... 1-6Implementing Emergency Management............................................................... 1-9IEMS and You.................................................................................................... 1-12

How Well Have You Learned?................................................................................ 1-13Self Test Review:............................................................................................... 1-13Correct Answers to Self Test Review ................................................................ 1-14

UNIT 2: THE EMERGENCY PROGRAM MANAGER ............................................... 2-1

Introduction ........................................................................................................... 2-2

Your Roles and Responsibilities ............................................................................... 2-3Civil Defense and Emergency Management..................................................... 2-3

How Does Civil Defense Work?................................................................ 2-5Legal and Moral Responsibilities ...................................................................... 2-6Working with the Executive............................................................................... 2-7Coordination With Other Agencies ................................................................... 2-8The Job Title ................................................................................................... 2-10You and Your Community ............................................................................... 2-10Local Emergency Partners.............................................................................. 2-11Intergovernmental Relations ........................................................................... 2-12

County Assistance .................................................................................. 2-13State Assistance ..................................................................................... 2-13Federal Assistance ................................................................................. 2-14

Tasks of the Emergency Program Manager............................................................ 2-16Hazard Identification and Planning ................................................................. 2-16Maintain the Emergency Partnership.............................................................. 2-16Emergency Response Systems ...................................................................... 2-16Coordination.................................................................................................... 2-17Hazard Mitigation............................................................................................ 2-17


Table of Contents

Legal Authority ................................................................................................ 2-17Information ...................................................................................................... 2-17Administration ................................................................................................. 2-18Training........................................................................................................... 2-18Change and Improve....................................................................................... 2-18

How Well Have You Learned?................................................................................ 2-19Self Test Review: ............................................................................................ 2-19Correct Answers To Self Test Review ............................................................ 2-22

UNIT 3: MITIGATION ................................................................................................ 3-1

Introduction ............................................................................................................... 3-2

Hazard Identification and Vulnerability Analysis ....................................................... 3-3Vulnerability Analysis........................................................................................ 3-5Keeping Your Hazard Identification Current ..................................................... 3-7

How Well Have You Learned?.................................................................................. 3-9Self Test Review: .............................................................................................. 3-9Correct Answers To Self Test Review ............................................................ 3-11

Emergency Mitigation.............................................................................................. 3-12Tools of Mitigation........................................................................................... 3-12

Mitigation Strategies ............................................................................................... 3-17Mitigation Alternatives..................................................................................... 3-17Summary of Your Role in Mitigation................................................................ 3-18

How Well Have You Learned?................................................................................ 3-20Self Test Review ............................................................................................. 3-20Correct Answers To Self Test Review ............................................................ 3-22

UNIT 4: PREPAREDNESS ....................................................................................... 4-1

Introduction ............................................................................................................... 4-2

Your Job And The Law.............................................................................................. 4-3Federal Law ...................................................................................................... 4-3State Law .......................................................................................................... 4-3Local Laws ........................................................................................................ 4-4

How Well Have You Learned?.................................................................................. 4-8


Table of Contents

Self Test Review ............................................................................................... 4-8Correct Answers To Self Test Review ............................................................. 4-9

Emergency Operations Planning ............................................................................ 4-10Getting Started - Preliminary Plans................................................................. 4-12

The Emergency Operations Plan ............................................................................ 4-15How to Develop the Plan................................................................................. 4-15The Basic Plan................................................................................................ 4-16Annexes to the Basic Plan .............................................................................. 4-18Appendices .................................................................................................... 4-19Standard Operating Procedures and Other Attachments ............................... 4-19Characteristics of a Good Plan ....................................................................... 4-20Testing the Plan.............................................................................................. 4-21Getting the Word Out...................................................................................... 4-23

How Well Have You Learned?........................................................................ 4-26Self Test Review ............................................................................................. 4-26Correct Answers To Self Test Review ............................................................ 4-28

Doing A Resource Inventory ................................................................................... 4-29A Resource Inventory...................................................................................... 4-30Government Emergency Capabilities.............................................................. 4-31Your Jurisdiction's Specialized Facilities, Personnel and Equipment............. 4-35Private Community Resources........................................................................ 4-38Getting Help from the Community ................................................................... 4-41Updating the Resource Inventory ................................................................... 4-41Developing a Resource Index......................................................................... 4-42Computers for Resource Management ........................................................... 4-42Neighboring Jurisdiction's Resources—A Comparison .................................. 4-43


UNIT 5: RESPONSE ................................................................................................. 5-1

Stages of Response.................................................................................................. 5-2Notification/Warning ......................................................................................... 5-2Immediate Public Safety ................................................................................... 5-3Property Security .............................................................................................. 5-3Public Welfare................................................................................................... 5-3Restoration........................................................................................................ 5-3Overview ........................................................................................................... 5-4


Table of Contents

How Well Have You Learned?.................................................................................. 5-6Self Test Review ............................................................................................... 5-6Correct Answers To Self Test Review .............................................................. 5-7

Using the Emergency Operations Center ................................................................. 5-8Making the EOC Operational ............................................................................ 5-9Controlling Access to the EOC ....................................................................... 5-11


Information in the EOC............................................................................................ 5-15Computers as EOC tools ................................................................................ 5-16

Informing the Public ................................................................................................ 5-18Rumor Control................................................................................................. 5-20Improving Public Emergency Response through Public Affairs ...................... 5-21


Damage Assessment .............................................................................................. 5-25


UNIT 6: RECOVERY ................................................................................................. 6-1

Introduction ............................................................................................................... 6-2

Recovery Assistance................................................................................................. 6-3Documentation.................................................................................................. 6-3How to Get Aid.................................................................................................. 6-4What to Expect from Federal Involvement ........................................................ 6-5

How Well Have You Learned?.................................................................................. 6-6Self Test Review ............................................................................................... 6-6Correct Answers To Self Test Review .............................................................. 6-8


Table of Contents

Community Expectations About Aid .......................................................................... 6-9Federal Assistance ........................................................................................... 6-9Agriculture....................................................................................................... 6-10Business ......................................................................................................... 6-11Emergency Services ....................................................................................... 6-11Fire Suppression............................................................................................. 6-12Flood Prevention and Protection..................................................................... 6-12Health Services............................................................................................... 6-12Individual Needs ............................................................................................. 6-12Community Assistance.................................................................................... 6-13New Partners .................................................................................................. 6-13Recovery Planning.......................................................................................... 6-14

Redevelopment as Mitigation.................................................................................. 6-17Capitalizing on Events .................................................................................... 6-18Recovery: Part of Your Job............................................................................. 6-19


UNIT 7: MANAGING EMERGENCY MANAGEMENT .............................................. 7-1

Introduction ............................................................................................................... 7-2Planning Guidelines.......................................................................................... 7-2The Planning Process....................................................................................... 7-3

Job Descriptions ....................................................................................................... 7-4

Staffing...................................................................................................................... 7-7


Financial Planning .................................................................................................. 7-13Budgeting........................................................................................................ 7-13Funding Expectations ..................................................................................... 7-17Accounting and Reporting............................................................................... 7-17



Table of Contents

Training. .................................................................................................................. 7-21State Programs ............................................................................................... 7-21Federal Opportunities ..................................................................................... 7-22Local Training Opportunities........................................................................... 7-24The Emergency Program Manager As Instructor............................................ 7-25

Toward the Future................................................................................................... 7-27


FINAL EXAMINATION FOR THE EMERGENCY PROGRAM MANAGER ....................................................Final Exam-1

How to Take the Final Examination ...........................................................Final Exam-2Final Examination.......................................................................................Final Exam-3


i

Course OverviewHere is what you will learn in the unitsof this course:

Unit 1: Comprehensive EmergencyManagement

• The three types of emergencies• The four phases of emergency

management• The integrated Emergency

Management System

Unit 2: The Emergency ProgramManager

• Your roles and responsibilities• Your job in Civil Defense and• Your tasks as an Emergency

Program Manager

Unit 3: Mitigation

• How to conduct a hazardidentification and vulnerabilityanalysis

• Tools and Techniques of,Emergency Mitigation

• Alternative strategies for achievingmitigation

• Your role in hazard mitigation

Unit 4: Preparedness • The legal basis for your job• Mutual aid pacts for resources and

support• Planning for emergency operations

• Characteristics of a good plan• Exercises to test plans and

operations• Developing a resource inventory

Unit 5: Response

• The five stages of emergencyresponse

• Using the Emergency OperationsCenter

• Managing information in an EOC• Informing the public about

emergency conditions• Conducting a damage assessment

Unit 6: Recovery

• The two stages of recovery• Obtaining recovery assistance• Expectations about disaster

assistance• The importance of recovery planning• Mitigation opportunities in

redevelopment

Unit 7: Managing EmergencyManagement

• Planning for emergencymanagement

• Your job description• Developing and managing a staff• Financial planning responsibilities• Training for emergency management


Unit 1-1

COMPREHENSIVEEMERGENCY MANAGEMENT

UNIT I


Unit 1-2

IntroductionYour job as an emergency programmanager is of vital importance to yourcommunity. If you do your job well, youcan help prevent death and injury to thecitizens of your community, you may beable to save millions of dollars in repaircosts, and you can feel confident thatyour community is prepared not only for anuclear attack but also for technologicaland natural disasters.

It is important for you to realize right fromthe start two important facts about yourjob.

First, the emergency program managerdiffers from an emergency responsemanager.

Second, part of that difference is that youare responsible for building yourjurisdiction’s part of a national emergencymanagement system capable ofresponding not only to local or regionalemergencies, but also to national securityemergencies.

As emergency program manager, you areresponsible for coordinating the plansand operations of the variouscomponents of the emergencymanagement system—fire and police,emergency medical services, publicworks, volunteers, and other groupscontributing to the management ofemergencies. The emergency responsemanager manages the application ofresources during a disaster. A Fire Chief,a Public Works Director, and a MedicalServices Coordinator are examples ofemergency response managers. You will

be working closely with the emergencyresponse managers as you prepare yourcommunity for emergencies. While theemergency program manager works moreclosely than ever with other emergencyresponders in fire, police, emergencymedical, and public works, there is adanger of ignoring your role in building anational emergency management systemcapable of responding to nationalsecurity emergencies. As the emergencyprogram manager, you must recognizethat natural disasters and technologicalemergencies may seem most pressing.Yet, the tools at hand and, perhaps, thefunding that supports your efforts are apart of America’s commitment to aneffective civil defense.

Just as you will work closely with otheragencies in your jurisdiction to buildeffective emergency management, youwill work closely with other levels ofgovernment to build effective nationalemergency management. This is theessence of the partnership that isdescribed in the Civil Defense Act of1950, as amended. This act is the basisfor your job as emergency programmanager.

The Act states:

It is the policy and intent of Congressto provide a system of civil defensefor the protection of life and propertyin the United States from attack andfrom natural disasters.


Unit 1-3

The “system of civil defense” that the Actdescribes means you. It means you, yourplans, your community resources—yourlocal or state emergency managementsystem. That is how the national civildefense and emergency managementsystem is constructed—on yourjurisdiction’s efforts.

A large city may have a full-timeemergency program manager, with a paidsupporting staff. There also maybe a full-time fire and police department. A smallcommunity may only have a volunteer firedepartment with only two or three piecesof apparatus. The emergency programmanager may also be a volunteer. Youmay be in one of these two categories orsomeplace in between. Perhaps you area shared employee, spending apercentage of time as the emergencyprogram manager and another part ofyour time as a member of some other

governmental agency, such as fire, publicsafety, planning, or public works.

Whatever your situation, this course is foryou.

This course is designed to cover thebasics of emergency management andyour role in building the national civildefense system. The principles you willlearn apply equally well to the volunteeras to the full-time paid emergencyprogram manager. Therefore, as youstudy this course, think about adaptingthe information to your particular job.

The format of this course is designed tohelp you learn and apply the principlesand tasks involved in emergencymanagement. This unit definesemergency management. The followingunit describes the tasks included in thejob of emergency program manager. Theremaining units of the course detail

Figure 1-1: No two emergency program managers’ jobs are exactly the same.


Unit 1-4

specific parts of the emergency programmanager’s job in the four phases ofemergency management.

When you complete this course you willbe ready to “start” your job as anemergency program manager. Theknowledge you gain in this course will beapplied, adapted, and refined by furtherexperience and training. As you studythis course, remember that your efforts inemergency management can make thecitizens of your community betterprepared for a disaster.

In most units you will find THINGS TODO. This part of the course providesworksheets, exercises, and tasks for thefuture. Complete the worksheets and theexercises. For the more time consumingtasks in THINGS TO DO you should thinkabout them and save them for the future.Make a note right on the page of anyideas you might have on how you wouldaccomplish the task. Remember,THINGS TO DO are part of your course.You will have a much better

understanding of your job as anemergency program manager as itapplies to your community by completingthe THINGS TO DO.

At the end of most sections in a studyunit there are SELF TEST QUESTIONS.These are to help you test yourself soyou can see how well you have masteredthe material. If you can’t answer aquestion, don’t guess. Find where thesubject is covered and look for theanswer. Looking in the unit to find theanswer to a question is not cheating. It islearning. If you do not know the answerto a SELF TEST QUESTION , do not goon. Review the material until you find theanswer. The answers to all of the SELFTEST QUESTIONS are provided at theend of each unit.

We wish you every success with thiscourse and your emergency managementcareer. Above all, we hope you achieve apersonal feeling of satisfaction fromcompleting this course and doing a goodjob.


Unit 1-5

What Is Emergency Management?While the functions of emergencymanagement have been performed fordecades by government and privateorganizations (Ben Franklin formed thefirst fire department more than 200years ago, for example), it was onlyrecently that the broader ideas aboutmanaging emergencies discussed inthis course were developed.

In this course, the concept used forhandling disasters and theirconsequences is called ComprehensiveEmergency Management (CEM). Thisapproach was institutionalized in 1979with the creation of the FederalEmergency Management Agency(FEMA). FEMA resulted from theconsolidation of five federal agenciesthat were dealing with many types ofemergencies. Since that time, manystate and local organizations haveaccepted this approach and changedthe names of their organizations toinclude the words “emergencymanagement.”

The name change was an indication ofa change in orientation away fromspecialized preparedness for singlehazards or narrowly defined categoriesof hazards and toward an all-hazardsapproach—attack, natural, andtechnological—to potential threats to lifeand property. As Congress and theFederal Emergency ManagementAgency have been quick to point out,this change reflects not a reduction insecurity, but an increased emphasis onmaking the nation’s emergencymanagement capability responsive toany major emergency.

This expansion into new hazards wasnot the only change brought about bythe development of the concept ofComprehensive EmergencyManagement , for the concept consistsof three interrelated components:

(1) All types of hazards: Thecommonalities among all types oftechnological and natural disasterssuggest strongly that many of the samemanagement strategies can apply to allsuch emergencies;

(2) An emergency managementpartnership: The burden of disastermanagement, and the resources for it,require a close working partnershipamong all levels of government(Federal, regional, state, county, andlocal) and the private sector (businessand industry, voluntary organizations,and the general public); and

(3) An emergency lifecycle: Disastersdo not just appear one day. Rather, theyexist throughout time and have alifecycle of occurrence which must bematched by a series of managementphases that include strategies tomitigate hazards, prepare for andrespond to emergencies, and recoverfrom their effects.

These three components formComprehensive EmergencyManagement, which is a good place tobegin defining what this course is allabout.

EMERGENCY is defined as any eventwhich threatens to, or actually does,inflict damage to property or people.


Unit 1-6

Large disasters can range fromhurricanes and floods, to explosionsand toxic chemical releases.

MANAGEMENT is defined as thecoordination of an organized effort toattain specific goals or objectives. Inemergency management,MANAGEMENT means an organizedeffort to mitigate against, prepare for,respond to, and recover from anemergency.

COMPREHENSIVE is the word thatbrings all this together. ft clarifies“emergency” by including all forms ofnatural, and technological eventswhich threaten or adversely affect livesand property. Comprehensive givesmore definition to the wordmanagement. Management meansbringing together the proper mix ofresources from the federal, state, andlocal governments, from business andindustry, and from the public.

Finally, comprehensive adds a newfactor to the meaning of emergencymanagement—PHASES. Phases comefrom the idea that disasters have alifecycle. Disaster don’t just suddenlyappear. A hazard exists, but it takessome event or accident to turn it into adisaster. For example, a river alwaysflows through a town and propane gastrucks pass through the streets. Largeamounts of rain, or a breaking dam canproduce a flood. Equipment failure orhuman error, similarly, can turn aroutine gas delivery into a disaster. As aresult, one of the basic principles ofCEM is that we can do something usefulboth before and after a hazard occurs.Comprehensive EmergencyManagement suggests that there are

four phases of emergency managementwhich must work together to protect acommunity.

Phases of Emergency Management

Ever since the Second World War,emergency management has focusedprimarily on preparedness. But beingprepared is only one phase ofComprehensive EmergencyManagement. A community also has theopportunity to deal with emergenciesbefore they strike and the responsibilityto aid recovery after a disaster. As aresult, current thinking defines fourphases of Comprehensive EmergencyManagement. They are MITIGATION,PREPAREDNESS, RESPONSE, andRECOVERY. There is an entire courseunit on each of these phases. Examinethe figure below and then let’s look at abrief definition of each so that you canvisualize the broad scope of emergencymanagement.

Figure 1-2: Actions taken in four phasesof emergency management (Reprinted bypermission of Hazard Monthly andResearch Alternatives, Inc.)


Unit 1-7

The four phases of comprehensiveemergency management are visualizedas having a circular relationship to eachother. Each phase results from theprevious one and establishes therequirements of the next one. Activitiesin one phase may overlap those in theprevious section.

The phases were illustrated in Figure 1-2 as parts of a circle, each merging intothe next one. Preparedness movesswiftly into response when disasterstrikes. Response yields to recovery atdifferent times depending on the extentand kind of damage. Similarly, recoveryshould trigger mitigation, motivatingattempts to prevent or reduce thepotential of a next disaster. Finally, thedisaster phases know no beginning orend. The recognition of a threat canmotivate mitigation as well as an actualemergency can.

In the units that follow, we shall use thefour phases of emergency managementas a way of structuring the lessons.Each phase will be treated in turn,beginning with the phase calledMITIGATION.

MITIGATION refers to activities whichactually eliminate or reduce the chanceof occurrence or the effects of adisaster. Recent research has shownthat much can be done to either preventmajor emergencies or disasters fromever happening, or if nothing else, atleast reduce the damaging impact ifthey cannot be prevented. For example,requiring protective construction toreinforce a roof will reduce damage fromthe high winds of a hurricane.Preventing the use of hazardous areaslike floodplains or adjusting the use of

such areas by elevating structures canreduce the chance of flooded Figure 1-3: Preventing the use of hazardousareas.

Figure 1-3: Preventing the use ofhazardous areas is MITIGATION.


Unit 1-8

The next phase of emergencymanagement is PREPAREDNESS.PREPAREDNESS is planning how torespond in case an emergency ordisaster occurs and working to increaseresources available to respondeffectively. Preparedness activities aredesigned to help save lives andminimize damage by preparing peopleto respond appropriately when anemergency is imminent. To respondproperly, a jurisdiction must have a planfor response, trained personnel torespond, and necessary resources withwhich to respond. In the preparednessunit, you will learn how to develop apreparedness plan for your communityand develop the necessary human andequipment resources.

RESPONSE is the next phase ofemergency management. RESPONSEactivities occur during and immediatelyfollowing a disaster. They are designedto provide emergency assistance tovictims of the event and reduce thelikelihood of secondary damage. Yourlocal fire department, police department,rescue squad and emergency medicalservices are primary responders. In theunit on response you will learn aboutthe relationship of emergency programmanagement to these emergencyresponders in your community.

Figure 1-4: PREPAREDNESS is beingready for the emergency you cannotavoid or prevent.

Figure 1-5: Dedicated emergency respondersare the key to effective emergency response.


Unit 1-9

Figure 1-6: The RECOVERY period putsthe community back together again.

RECOVERY is the final phase of theemergency management cycle. Recoverycontinues until all systems return tonormal, or near normal. Short-termrecovery returns vital life support systemsto minimum operating standards. Long-term recovery from a disaster may go onfor years until the entire disaster area iscompletely redeveloped, either as it was inthe past or for entirely new purposes thatare less disaster-prone. For example,portions of a flood-prone town can berelocated and the area turned into openspace or parkland. This illustrates thatduring recovery, opportunities to mitigatefuture disasters arise. Recovery planningshould include a review of ways to avoidfuture emergencies.

Implementing Emergency Management

The concept of an all-hazards approachto emergency management defined inComprehensive Emergency Management

has been implemented by the FederalEmergency Management Agency in itsIntegrated Emergency ManagementSystem. This implementation is based onall the principles of CEM with the specificgoals of:

• Fostering a full federal, state and localgovernment partnership with provisionsfor flexibility at the several levels ofgovernment for achieving commonnational goals.

• Emphasizing implementation of

emergency management measureswhich are known to be effective.

• Achieving more complete integration of

emergency management planning intomainstream state and local policy-making and operational systems.

• Building on the foundation of existing

emergency management plans, systems,and capabilities to broaden theirapplicability to the full spectrum ofemergencies.


Unit 1-10

FOUR PHASES OF COMPREHENSIVE EMERGENCY MANAGEMENT1 MITIGATION

(LONG-TERM)DEFINITION : Any activities whichactually eliminate or reduce theoccurrence of a disaster. It also includeslong-term activities which reduce theeffects of unavoidable disasters.

PREPAREDNESS(TO RESPOND)

DEFINITION: Preparedness activities arenecessary to the extent that mitigationmeasures have not, or cannot, preventdisasters. In the preparedness phase,governments, organizations, andindividuals develop plans to save livesand minimize disaster damage.Preparedness measures also seek toenhance disaster response operations

RESPONSE(TO EMERGENCY)

DEFINITION: Response activities followan emergency of disaster. Generally,they are designed to provide emergencyassistance for casualties. They also seekto reduce the probability of secondarydamage and to speed recoveryoperations

RECOVERY(SHORT AND LONG TERM)

DEFINITION: Recovery continues untilall systems return to normal or better.Short-term recovery returns vital lifesupport systems to minimum operatingstandards. Long-term recovery maycontinue for a number of years after adisaster. Their purpose is to return life tonormal, or improved levels.

2 GENERAL MANAGER:Building codesVulnerability analyses updatesTax incentives/disincentivesZoning and land use managementBuilding use regulation/safety codesCompliance and enforcementResource allocations/interstate sharingPublic education

Preparedness plansEmergency exercise/trainingWarning systemsEmergency communications systemsEvacuation plans and trainingResource inventoriesEmergency personnel/contact listsMutual aid agreementsPublic information/education

Activate public warningNotify public authoritiesMobilize emergencypersonnel/equipmentEmergency medical assistanceMan emergency centersDeclare Disaster/evacuateMobilize security forcesSearch and rescueEmergency suspension of laws

Damage insurance/loans and grantsTemporary housingLong-term medical careDisaster unemployment insurancePublic informationHealth and safety educationReconstructionCounseling programsEconomic impact studies

3 HAZARD SPECIFIC MEASURESFLOOD: Dam construction/inspectionStream channelizationconstruct/protect retention barriersReforest/prevent deforestationContour farmingflood proof buildings

Temporary levee constructionStream flow monitoringIce and debris removalTemporary flood proofing

Helicopter searchBoat rescue

Decontamination of water sourcesReplant cropsPump out flooded basementsRemove temporary floodproofingMonitor disease

EPIDEMIC: School inoculationsRodent/insect eradicationWater purificationSanitary waste disposalHealth codes/laws/inspectionsPublic health education

Stockpiling drugsPhysician preparedness plansPublic notificationQuarantine regulations and plansEmergency medical authorities

QuarantineDisinfect propertySecure bodiesIsolate carriers

Continuing research into causesLong-term restorative therapy

FIRE: Fire codesNo-smoking lawsFire zoningFire safety information

Fire drills/exit signsCallboxes/smoke detectorsPolice crowd control trainingFire department and agreementsFirefighter trainingAutomatic

FirefightingContainment

RebuildingRazing burned-out buildingsReforestation

HAZARDOUS MATERIALS SPILL:Transport speed limitsContainer structure codesCorporate licensingRestricted routingMaterials identification codes

Containment and scrubbing equipmentStockpile neutralizing materialsEmergency training for transportersSpecials apparatus for emergencies

Identify materialNotify Nation ResponseCenter/CHEMTRECContainmentPlume trackingAir/Water/soil contamination controls

Reassess existing regulationsDecontamination environment

LANDSLIDE:Forest managementPreserve ground coverMaintain natural runoffStabilize slopesReal Estate disclosure laws

Reinforce threatened structuresLandshift monitors

Assess stability of new formationReinforce against secondary state

Reside denuded areasNew land-use planning

WIND:Roof anchorsWindow size and thickness codesWindbreaks

Strom shelter constructionProperty protection measuresStorm watch and warning guides

Reinforce damaged propertyBroadcast State

Reconstruction

HURRICANE STORM SURGE:Barrier islandsCoastal wetlands protectionReplace coastal sand dunesConstruct breakwaters/leveesCoastal zone managementPublic information program

Vertical evacuation plansStorm trackingShutter windowsEvacuate planes and boats

Same as for flood/wind (above) Rebuild destroyed sand dunes

GASOLINE SHORTAGE:Alternative researchAllocation/international sharingMass transit systems/car poolingDesign emergency efficient enginesReduce speed limitsEnergy conservation program

Stockpile reservesReallocate to shortage areasRationing plans

Odd-even purchase programMinimum purchase requirementsIncrease refinery productionDeregulate oilIncrease gasoline prices

Excess profits tax on companiesReassess allocation plansTwo-way/Truck hauling

NUCLEAR PLANT ACCIDENT:Site zoningWaste management/containmentresearchPlant safety codes/inspectionsPlant operator trainingEnvironmental impactresearch/statements

Contamination monitoringIdentify vulnerable populationsShelter preparationDesignate Governor’s technicianEmergency procedures rehearsal

Contains radioactivity Reassess sitting requirementsMonitor deterioration of contaminate

Figure 1-7: Four phases of Comprehensive Emergency Management.


Unit 1-11

To accomplish these ends requires anational program built upon localjurisdiction efforts. This course helps youbegin to acquire the skills and knowledgeessential to building a communityemergency management program fullyintegrated into a national emergencymanagement system.

This course and IEMS takes into accountthe fact that each community across thecountry has its own existing level ofemergency management capabilities.Some jurisdictions have already put inplace the components of an effectiveemergency management system. IEMSwill build upon these existing capabilities,providing incentives to improve andfurther integrate localities and states intoa national system.

In the IEMS approach, the communitywhich has, to this point, done little towarddeveloping emergency managementactivities will begin a process to developemergency plans that are governed bynational criteria specific enough toprovide guidance but sufficiently generalto allow flexibility for the local protectionoptions communities believe are critical.

The process begins with acomprehensive hazard assessmentprepared by the community, possibly inconjunction with state and federalregional personnel, depending on thecircumstances. It then proceeds throughan analysis of capability (identifyingshortfalls of resources), and moves to thedevelopment of a generic operations planwith annexes for the emergencymanagement functions and appendicesfor the unique aspects of individualemergencies, the maintenance ofcapability, mitigation activities,

emergency operations, and evaluation ofsuch operations. The jurisdiction will thenbe asked to prepare a multi-yeardevelopment plan, followed by annualplan increments as the process proceeds.By following this process, a communitycan establish an Integrated EmergencyManagement System with readiness todeal with both the common elements ofpreparedness and those requirementswhich are unique to individualemergencies.

In jurisdictions which have alreadydeveloped their planning process morefully, a number of the steps in thisprocess may only need review or update.

In FEMA’s commitment to IEMS rests thecommitment to capitalize upon thesubstantial body of experience inemergency management as well as thevast amount of in-place resources incommunities throughout our nation. Thiscourse is the first step you, personally,will take toward participating in thenational emergency management system.That participation begins, mostimportantly, in your own jurisdiction asyou move toward integrated emergencymanagement. As you proceed with yourdaily activities, ask yourself how yourwork relates to public safety from allhazards. Ask yourself how emergencyplanning can be integrated in overallcommunity planning. And ask yourselfhow the full partnership of governmentsand the private sector can beimplemented for emergency management.The community that constantly considersways to improve emergency managementthrough integration with other resources,skills, and knowledge will make significantprogress toward improved public safety.


Unit 1-12

IEMS and You

The Integrated Emergency ManagementSystem provides the broad outlines andsome specific tasks of your job.

First, you are responsible for all types ofnatural and manmade disasters.

Second, your job is to advise and helpimplement the planning and coordinationof, mitigation of, preparedness for,response to, and recovery from alldisasters.

Third, you do not act alone inaccomplishing emergency management inyour jurisdiction. IEMS is a partnership ofother members of your jurisdiction’s staff,the federal, state, and local governments,private business and industry, and thepublic. Your job, then, includes buildingand maintaining a partnership that willhelp fulfill the Integrated EmergencyManagement System.

The job of the emergency programmanager involves all types of disasters,all phases of management, and allnecessary participants. In the followingchapters you will learn more about thedetails of the job of emergency programmanager and the vital role you play inprotecting the lives and property of yourcommunity.


Unit 1-13

How Well Have You Learned?SELF TEST REVIEW

Answer the following questions to test your knowledge of Unit 1 facts. Read each questioncarefully, then write in the answer that you think is correct. Answers can be found onpage 1-14.

1.) What are the three components of comprehensive emergency management?

2.) What are the two types of disaster each emergency program manager has toconsider?

3.) Define “emergency.”

4.) What are four of the phases of comprehensive emergency management?

5.) What national program is designed to use local emergency capabilities to build anational emergency management system?


Unit 1-14

CORRECT ANSWERS TO SELF TEST REVIEW ................................ ....... Review Pages

1.) Three types of disasters ...........................................................................................1-5Four levels of participationFour phases of management in a hazard lifecycle

2.) Natural and technological emergencies ...................................................................1-5

3.) Any event that threatens or inflicts damage to property or people...........................1-5

4.) Mitigation, preparedness, response, recovery ........................................... 1-6 thru 1-9

5.) The Integrated Emergency Management System .................................... 1-9 thru 1-12

For every question that you answered incorrectly, review the pages listed above next tothe answer to find out why your answer was incorrect.


Unit 2-1

THE EMERGENCY PROGRAMMANAGER

UNIT 2


Unit 2-2

IntroductionWhen you take the job of emergencyprogram manager, you become a publicemployee acting always in the bestinterests of your community. When youbegin the job, you will be looking at manypieces of a puzzle that, in time, you willlearn to put together into an efficientemergency management program.

At the beginning, however, there aremany parts that you might think fittogether loosely. You have heard, forexample, that you are charged withestablishing systems to help thecommunity survive a drought. How doesthis fit, you may wonder, with the floodsthat happen every year or hazardousmaterials spills that concern citizens?

You also have a job that is specified anddefined by law, but you have been hiredand can be fired by an elected mayor, ora city manager, or a county executive.How do the law and your boss fit intoyour priorities? Then, in addition to legalaspects, you probably find yourselfviewing a large part of your job as amoral responsibility to save lives andreduce property damage.

You also may have realized that you area general without troops. You have beencharged with developing emergencyplans for the community, but you knowquite well that the fire chief has the menand equipment, the Red Cross peoplehandle mass feeding, the public worksdirector has the trucks, the hospital hasthe medical staff, and the police chief haslaw enforcement duties. All of theseemergency responders come into play inan emergency. Where do you stand in

regard to these emergency operationsunits?

Similarly, where do the next higher levelsof government come in? What can youexpect from the county, state, or evenfederal governments? Finally, one of thebiggest question marks right now may beyour job itself. Is emergency programmanagement a new word for civildefense, or is it more? What is the job?What will you have to do? In short, who isthis person, the emergency programmanager?

Figure 2-1: The EPM makes it happen!


Unit 2-3

Your Roles and ResponsibilitiesThe emergency program manager hasthe responsibility for coordinating all thecomponents of the emergencymanagement system in the jurisdiction.These components consist of the civildefense effort, fire and police, emergencymedical service, public works, volunteersand other groups contributing to themanagement of emergencies. The partsof the emergency management systemare no different than the parts ofgovernment and the private sector thatmanage the day-to-day affairs of thecommunity. Emergency government isgovernment in an emergency.

Your job is to make certain that thecomponents of the emergencymanagement system know the threats tothe community, plan for emergencies,can operate effectively in an emergency,and can conduct recovery operationsafter a disaster. You are responsible forcoordinating all the necessary activitiesto ensure effective operation of theemergency management system.

You will accomplish your job byperforming several specific tasks that youwill learn in this course. Before thosetasks are described, you need to realizethat emergency management in yourjurisdiction will depend on the way youand your mayor, executive, or governordecide to approach the job. Theapproach you take will depend on severalfactors relating to law and morality, yourrelationship with your boss and othergovernment officials and agencies, andmembers of the community. Thesevarious considerations that helpdetermine the way emergencymanagement is conducted in your

jurisdiction are discussed below. We willbegin with a crucial part of your job—balancing your role as leader of yourjurisdiction’s efforts to survive a disasterwith your role as coordinator of allemergency planning and response fornatural and technological disasters.

Civil Defense and EmergencyManagement

Emergency management in the UnitedStates is by function and by law acooperative effort on the part of all levelsof government and the private sector.Local, state, and Federal governments allhave responsibilities in carrying outpublic safety. Similarly, private businessand industry, voluntary organizations,and the general public haveresponsibilities to assure safe industrialpractices and maintain a level ofeducation about hazards andemergencies that lead to predictablepublic reactions to warnings of disaster.

Because emergency management is acooperative effort of many parts ofsociety, there are many goals for eachunit of emergency management. At thestate and local levels, government isconcerned about the protection andeducation of the public from the hazardsand risks that effect them. These hazardsare usually the ones that are immediateand easily understood, based on pastexperience of the community, such astornadoes, floods, hazardous materialsspills, hurricanes, and others.

At the national level, government isconcerned about all of these local orregional hazards.


Unit 2-4

Civil defense is not separate fromemergency management—it is part ofemergency management. The civildefense program in the United Statessupports all-hazard emergencymanagement at state and local levelswhen such activities are consistent withand contribute to the emergencypreparedness of the nation for any typeof attack or threat. In turn, every action ofstate local emergency program managersought to contribute to developingemergency capabilities that could beemployed in national securityemergencies.

Capabilities that are needed for anational emergency include:

(1) Population protection capabilitiesthat include evacuation of peoplefrom risk areas, sheltering ofevacuated people, and protection ofpeople who remain in or near riskareas;

(2) Crisis management and decision-making capabilities to supportpublic safety actions in a nationalsecurity emergency, includingcommunications, warning, continuityof government, and direction andcontrol;

(3) Information and educationcapabilities for the public about thethreats that may affect them andwhat they can do to promoteindividual and family survival;

(4) Information and educationcapabilities for business andindustry about industrial andworkforce protection measures;

(5) Public and community protectiveaction capabilities undertaken on avoluntary basis by individual citizensand community organizations,promoted and encouraged by stateand local governments; and

(6) Mobilization capabilities for all civildefense resources and systems bothgradually and rapidly as dictated byworld conditions.

Clearly, the role of the state and localemergency manager in these efforts iscrucial. When it comes to contacts withthe public, with business and industry,and with elected and appointedgovernment officials, the emergencyprogram manager is way out in front inhis or her jurisdiction. The credibility ofthe program resides, in part, in thecredibility of the program advocate. Theemergency program manager shouldexemplify the utility of the civil defenseprogram.

Similarly, when it comes to capabilitydevelopment for crisis management anddecision-making, the emergency programmanager is the experienced resource forany jurisdiction. The emergency programmanager coordinates resources, shelter,evacuation, and emergency response

In short, the capabilities required foran effective civil defense contributionto national emergency management areintegral to, and supportive of, the entirejob of the emergency program manager.


Unit 2-5

How Does Civil Defense Work?

The Civil Defense Act of 1950, asamended, provides for a jointresponsibility to carry out civil defensethat lies with the Federal Government,the States, and all local jurisdictions. Inactuality, specific roles have emerged, asshown in Figure 2-2 and describedbelow.

CIVIL DEFENSE ROLES

Federal Government

Preparedness GuidanceFinancial AssistanceMutual Aid EncouragementPublic InformationCoordinate with State and Local GovernmentsCoordinate Among Federal Agencies

State Governments

Primary PreparednessMutual Aid AgreementsCivil Defense PlansCivil Defense SystemsLocal Preparedness GuidancePublic Information

Local Governments

Primary PreparednessPublic Protection for all HazardsPublic Information

Figure 2-2: Breakdown of governmentroles in civil defense.

The Federal Government developsguidance on national security emergencypreparedness. This includes procedural

guides for state and local governmentsas well as technical guides for business,industry, and the public. To carry out thisguidance, the Federal Governmentprovides financial assistance to supportcivil defense capability-building. TheFederal Government coordinates itsefforts in civil defense with state and localgovernments and encourages thedevelopment of mutual aid agreementsamong states. Within the FederalGovernment, the Federal EmergencyManagement Agency (FEMA) serves asthe lead agency for civil defense andcoordinates with other federal agencieswith responsibilities or capabilitiesvaluable to national security emergencypreparedness.

State governments share responsibilityfor preparedness with a FederalGovernment. They have primaryresponsibility for emergencypreparedness within their jurisdiction.States develop civil defense plans andexpend both federal monies and statemonies on the development of civildefense system capabilities. Theseinclude communication and warningsystems, emergency Operating Centers,and other direction and control systems.States also join together, in the formmutual aid agreements, to share theseand other resources. States also prepareguidance and training for local officialsand inform and educate he public aboutcivil defense. The states, throughagreements with the FederalGovernment, are important implementingmechanisms for the United States civildefense program.

Local governments are where emergencymanagement is carried out. The same istrue for civil defense. While localgovernments share responsibility for


Unit 2-6

preparedness, their share is often itsimplementation. In a national emergency,evacuation of people calls upon localpolice, local highway resources, and localplans. In the sheltering areas, localfacilities, supplies, and personnel bearthe burden of action. But this is how italways is. In any type of emergency, localcapabilities are the ones that are broughtto bear on problem resolution. Therefore,the principal responsibility of localgovernment is to be able to providepublic protection for all types of hazards(natural and technological).

In short, when emergency managementsaves lives and protects property, part ofthe credit goes to civil defense.Conversely, when a jurisdiction’semergency management programstrengthens capabilities that areconsistent with, and contribute to, civildefense, then the national security of theAmerican people is strengthened.

In summary, civil defense is emergencymanagement. Civil defense is theresponsibility of local, state and FederalGovernments. And most importantly, civildefense is your responsibility as anemergency program manager.

Legal and Moral Responsibilities

The job of the emergency programmanager is defined by law. It does,however, have a moral basis. Theemergency program manager mustbalance the duties authorized andrequired by law with the moral obligationof the public employee to do everythingpossible to protect and preserve thesafety of citizens in the jurisdiction.

Many states require that the localjurisdictions provide for the position ofemergency program manager. Theauthority granted by a local law orordinance is your first definition of yourtasks and obligations.

If you have difficulty in locating thespecific part of your local law whichprovides for the job, seek assistance froma member of the local governmentadministrative staff or the municipalattorney. It is doubtful that you wouldhave the position of emergency programmanager if it was not provided for by law.If it is not provided for, see what isrequired to get the local law amended assoon as possible.

In reviewing the local law, determine whohas the final authority for emergencymanagement decisions. In somecommunities, all authority is vested in thecommunity’s chief executive. Theemergency program manager’s functionis to advise the chief executive what todo. The authority to act rests with theexecutive. In other communities, somedegree of authority is vested in theemergency program manager. However,you will find that in most majoremergencies or disasters, the chiefexecutive is the person who mustapprove state or federal assistance.

Once you understand the legalresponsibilities of your job, you need toconsider, as well, the moral side. You area public employee. By accepting thatposition you accept the responsibility of apublic trust. The citizens of yourcommunity have entrusted their safety toyou. Your performance as emergencyprogram manager will determine how wellyou fulfill that trust.


Unit 2-7

THINGS TO DOGet a copy of that portion of your locallaw or ordinance which specificallyprovides for your job. Read it carefully todetermine if your duties andresponsibilities are explained. A laterTHINGS TO DO will provide a worksheetfor an evaluation of the law. For now, tryto be familiar enough with the law to seewhether it fits the job of emergencyprogram manager as described here.

Working with the Executive

Your local law will specify a chain ofcommand in emergencies. It will tell youto whom you report. In most cases it willbe the chief executive of your community,such as a mayor, city manager, countyexecutive, or county supervisor. One ofthe first things you should do is find outwhat your supervisor expects of you andyour office.

From one jurisdiction to another,government leaders have differentexpectations of what the emergencyprogram manager should do. They alsohave different methods of operation. Onetype of official may be authoritative andsee the emergency program manager astaking directions from the official. Othersmay look at their job as supportive,leaving most of the emergencymanagement functions with theemergency program manager. Eitherway, the emergency program manager’sjob is basically. the same; the primarydifference is in how you interact with yoursupervisor.

As you deal with the chief executive,remember, you are the one who is trainedin emergency management. Even if yoursupervisor is authoritative, you cansuggest options or directions to him orher and assist in making the decision.You may do all the research, and simplysay to the executive “I suggest youdecide to do this.” The executive agrees,and is pleased that he or she made the .decision, even though you greatlyinfluenced it.

Figure 2-3: A good working relationship isimportant.


Unit 2-8

How you work with your boss is anotherpart of the emergency managementpicture that you will have to clarify in thefirst months of your job. The choices aremany. The emergency program manager,by definition, should be chief of staffduring an emergency, should reportdirectly to the executive and, by virtue ofthe authority of the chief executive,coordinate all the functions ofgovernment emergency response.

Clearly, to achieve this ideal a goodworking relationship is necessary. Trustis essential. This course cannot tell youhow to gain the trust of your supervisorexcept to say that competence breedstrust. A good working relationship doesn’t“happen.” It is the product of hard work.

Coordination With Other Agencies

You should strive to be looked upon asthe jurisdiction’s expert in emergencymanagement and key staff advisor toyour chief executive. It is most importantthat other governmental departments lookupon your role in that manner. As anemergency program manager, you will beworking closely with other departments,such as the fire department, policedepartment, planning department, anddepartment of public works. During anemergency, you may be coordinatingoperations among these departments. Agood working relationship with otherdepartment heads is essential.

Figure 2-4: Effective emergency management requires coordination with all otherdepartments and agencies in the jurisdiction.


Unit 2-9

The subject of coordination is one youwill have to deal with early in your job.

The police, fire, and other emergencyservice agencies are independent. Theyhave their own mandates; they have theirown responsibilities to fulfill.

In an emergency, however, all of theseemergency responders must worktogether like a well-oiled machine. Thepublic safety is poorly served bycompetitiveness and organizationaljealousy.

The chief executive officer or jurisdictionmanager is charged with creatingeffective emergency services. By takingthe job of emergency program manageryou have been delegated this task byyour supervisor. It remains theexecutive’s legal responsibility, but itbecomes your job.

Coordination of police, fire, public works,etc. throughout emergency managementis a matter of personal style. Frequentcontact, sharing advice, and combinedtraining are all ways to make coordinationeasier. Most important of all, however, isto know the boundaries of coordination.

For example, coordination means makingcertain that police and fire arecooperating in setting up a security orcrowd control line. Your role ascoordinator is to make certain thatresponsibility is assigned and actiontaken without conflict or controversy.Your role is definitely not to tell the policechief how or where to set up security.

Thus, consider your role as coordinatorone that comes into play when more thanone emergency organization is involved.This always takes place in major

disasters, but can occur in minoremergencies. For example, even in a fire,you may be called upon to coordinate thetemporary housing of victims with theRed Cross or other social serviceagency. Your job is one of planning andnegotiating the overall smoothperformance of all community emergencyservices. You serve the executive andpublic when everyone knows and doesthe proper job.

If you are new to your job, your chiefexecutive can help establish a goodworking relationship with otherdepartment heads by putting out anofficial active about your position. Even ifu have been in your position for me time,an official announcement should bemade. It may read something like this:

Sam Jones is hereby appointedEmergency Program Manager for the Cityof ABC. The Emergency Programmanager is responsible for developingand maintaining the emergencymanagement plans and programs of thisjurisdiction. All departments and agenciesof the government of this jurisdictionshare the responsibility of serving andprotecting our people from day to dayand during times of emergency ordisaster. Accordingly, the head of eachdepartment and agency is requested togive the Emergency Program Managerthe fullest cooperation and assistance as(s)he acts for me in this capacity.

If you are new to the position, a pressrelease from the office of the chiefexecutive should also be prepared for thelocal media.


Unit 2-10

The Job Title

In the above statement announcing a jobappointment, the job title “EmergencyProgram Manager” was used. This is notto suggest that it is the ideal job title. Onthe contrary, your title should becompatible with what is currently used byother department or agency heads inyour jurisdiction.

Because your relations with otheragencies are important to the success ofemergency management, you need to beable to deal with agency heads on anequal footing. Titles are important in abureaucracy. When pressures build,when persuasion is necessary, it will bevery important to be dealt with as anequal.

True, the job title is only one part ofachieving status for the emergencymanagement program. You will have toprove yourself capable. However, the jobtitle is the first impression and it will helpin the long run if it is compatible withthose of all other agency heads.

You and Your Community

One of the basic problems with manyemergency management programs islack of community support. If you live in acommunity with no previous history ofemergencies, community support foremergency management may be minimal.Even in large cities there may be limitedsupport of emergency managementprograms. If you feel support for youremergency management program is notadequate, you have the opportunity to tryto build additional support.

The only answer to this dilemma is tocreate an effective emergencymanagement program that builds publicsupport by incorporating citizens inactions at every opportunity.

By the time you complete this course, youshould be in a position to start changingyour community’s mind about emergencymanagement. Even if you feel you have asuccessful program now, you will be ableto make it better. You will know how todevelop relationships with the press toinform local citizens about the program.You will learn how to keep a communityin a state of readiness case a disasteroccurs. You will learn how to usevolunteers if paid help is not available.You will learn how to persuade electedofficials to take a greater interest in theemergency management program.The key to your community’s emergencymanagement program is you. You are theone who will be able to make thecommunity more aware of emergencymanagement, and to support for theprogram.

Regardless of the state of the currentemergency management program, youcan make it more effective, more efficient,and better recognized as a vital part ofthe community’s total governmentservices. Community support does notarrive suddenly one day, it is built by youas part of your job.

THINGS TO DOCheck the phone book to see whether youremergency management office is listed inthe directory. This is a good, quick way offinding out the “public stature” of youroffice. Can the public find you quickly underemergency numbers in the front of thephone book? With some difficulty in thelocal government listing? Or not at all?


Unit 2-11

Local Emergency Partners

You have already seen that emergencymanagement is really a group effort of allgovernment departments and agencies inyour jurisdiction. You are partners withthem, all serving the interests of publicsafety in a disaster. Local electedofficials are also partners in emergencymanagement. You will be working withthem primarily in an advisory capacity.

You also have a variety of emergencymanagement partners in the privatesector. They range from privatebusinesses to civic organizations andindividuals. You will learn how importantthese partnerships can be in later units. Itis important to have good workingrelationships. Your partnership with thelocal news media also cannot beoveremphasized. A good workingrelationship with the press will be one ofyour most important resources.

In a sense, every man, woman, and childis one of your partners in emergencymanagement. When a disaster strikes,they must know what to do. They mustknow what to expect. You, working astheir partners, will have to help themlearn about their roles.

As you approach the job of emergencyprogram manager, your partners at thelocal level must be considered. What doyou want from them? What do theyexpect from you? How can you best makethis emergency management partnershipwork? These are the questions to whichyou must give thought in the early monthsin your job. How you build a base ofparticipants in your emergencymanagement program will influence itslater accomplishments.


Unit 2-12

To answer the questions above, localassistance is perhaps the easiest to get,and often the most valuable. One of thefirst things you should do is go on a localfact-finding mission. Talk to those in yourcommunity who play a part in emergencyoperations. For example, talk to the firechief, police chief, head of the publicworks department, and the previousemergency program manager if there wasone. Talk to those in the private sectoralso, such as officials from local utilities,Red Cross, major industries, schoolboard chairperson, principal bankers, orheads of other organizations. Find outwhat types of emergency situations theyface, and how they do it. Find out howthey view the role of the emergencyprogram manager, what they expect, andwhat they need.

Intergovernmental Relations

One of the basic premises of emergencymanagement in the United States is apartnership among the federal, state, andlocal governments. Each governmentalbody has certain duties andresponsibilities in this partnership. In anymajor emergency or disaster, they allwork together. Your local government isnever left to fend for itself in a disaster.There is always help available when thesituation goes beyond the resources ofyour community. Thus, there are partnersin emergency management extending aidacross all levels of government, both intime of emergency and in preparing forpotential disasters. When in need,emergency program managers shouldturn first to the next higher level ofgovernment, be it a county, state, or thefederal government.

Figure 2-5: Emergency management is people working together.


Unit 2-13

County Assistance

For emergency program managers withjurisdiction in a town or city, a majorsource of assistance lies with the countygovernment. The county emergencyprogram manager is likely to haveresponsibility for disasters occurring inunincorporated areas and in countyhighways. In addition, a countyemergency program manager mustcoordinate with all city or municipalorganizations to assure an efficientresponse throughout the jurisdiction.

County emergency program managersfrequently provide assistance in the formof training, information, and sometimesequipment. They are a main point ofcontact for local emergency programmanagers in times of disaster and inpreparation for potential emergencies.

Figure 2-6: There are many sources oflocal assistance.

State Assistance

All states have emergency managementoffices. A STATE EMERGENCY OFFICEcan provide valuable assistance in

several areas. First, the state office hasan experienced staff. Unlike many of yourlocal contacts, the people in the stateoffice are trained in emergencymanagement. Therefore, they can answeryour technical questions about the job.

Most states also provide trainingprograms for emergency programmanagers. Classroom instruction is oftenprovided in several areas of emergencymanagement such as preparednessplanning, emergency operations, andcareer development. The STATETRAINING OFFICER can also serve asan advisor for you, and help decide whichtypes of training programs may be bestfor you or members of your staff.

The next higher level of government isyour first source of aid in time of actualemergency. If your community cannotprovide adequate resources to meet itsneeds in time of disaster, the first placeto turn for additional assistance is to thecounty or state emergency managementoffice. They, acting on the informationyou provide, will dispatch personnel tothe scene to assist in the response andrecovery effort. Only the Governor,however, can request the federal aid thatcomes with a Presidential Disasterdeclaration.

THINGS TO DOContact the county or state emergencymanagement office. Set up anappointment to talk to the trainingofficer or a member of themanagement staff. Find out what typeof assistance is available from theoffice for local jurisdictions.


Unit 2-14

Federal Assistance

The Federal Emergency ManagementAgency (FEMA) is your principal sourceof federal assistance. First, FEMAprovides a variety of opportunities fortraining, and you should take advantageof them. This course is just one of thetraining opportunities. FEMA alsoprovides classroom instruction, andoperates the National EmergencyTraining Center (NETC). NETC offershigher level courses in emergencymanagement.

Almost all federal agencies haveprograms which provide assistance to thelocal jurisdiction in one of the phases ofemergency management. For examplethe U.S. Army Corps of Engineers andthe Centers for Disease Control haveprograms in mitigation. The NationalWeather Service and the Health ServicesAdministration have programs in planningand preparedness. The U.S. CoastGuard and the Federal HighwayAdministration have programs inemergency response. The SmallBusiness Administration and theDepartment of Labor have programs for

disaster response and recovery.Likewise, the Federal EmergencyManagement Agency (FEMA) provides,through the Performance PartnershipAgreements (PPA) process, planningassistance; e.g., the development of aRADEF Annex. These are only a few ofthe federal agencies which haveprograms to assist local communities.You will learn more about these programslater.

There are also numerous publicationswhich are available through FEMA. Yourstate training director can help youidentify the publications and programswhich are offered by FEMA and whichmay be of most benefit to you.

In helping jurisdictions prepare fordisasters, FEMA also provides directfunding to help support the personneland administrative expenses ofemergency management. At varioustimes in the past, federal funds havebeen available for shelter development,Emergency Operations Centers, warningsirens, surplus equipment, and othertools of emergency management. Checkwith your county or state emergency

Figure 2-7: Putting together the pieces of an emergency program.


Unit 2-15

office to see what Federal programs arecurrently available and the fundingrequirements.

In a disaster, federal assistance becomesavailable following a declaration of amajor disaster or emergency by thePresident. The declaration must berequested by the governor of your state.The declaration permits a wide range offederal response and recoveryassistance to come into the community.This aspect of your emergencypartnership with the federal governmentwill be detailed later in this course.


Unit 2-16

Tasks of the Emergency ProgramManager

In the previous section, several differentparts of the emergency programmanager’s job were described.Depending on the jurisdiction, theemergency program manager’s approachto these parts of the job will vary. In thissection, specific tasks important to theeffective conduct of comprehensiveemergency management are described.These tasks were identified by theFederal Emergency Management Agencythrough a series of workshops involvingemergency program managers from alllevels of government. No matter what thejurisdiction, or the particular approach toemergency management of thejurisdiction, these tasks are the COREFUNCTIONS of an emergency programmanager and his or her staff.

Hazard Identification and Planning

The emergency program manager isresponsible for conducting hazardidentification, capability assessment, andvulnerability analyses which identify thehazards presenting the greatest dangerto the jurisdiction. Based on thoseanalyses, the manager must thendevelop and update plans for emergencypreparedness, response, recovery, andhazard mitigation. In this course, UnitThree describes how to conduct a hazardanalysis and Units Four and Sevendescribe emergency planningprocedures.

Maintain the Emergency Partnership

In order to carry out the tasks ofemergency management, the programmanager must call on the necessaryresources of the community. To do thiswell, the program manager must carry outthe task of developing and maintainingeffective relationships with government,private, and voluntary sectors of thecommunity. The objectives of theserelationships are to facilitate mutualconsultation, exchange information, andprovide agreements for cooperativeaction. The emergency managementpartnership was described earlier in thecourse and its development will bementioned throughout the units onpreparedness and response.

Emergency Response Systems

The emergency program manager ischarged with establishing, implementing,maintaining, testing and evaluating theactual operational systems forresponding to known threats to thejurisdiction. Response systems includecommunication, warning, emergencypublic information, shelter, radiologicaldefense, and the emergency operationscenter. The units in this course onpreparedness and response provide youwith basic information on operationalsystems for the emergency programmanager.


Unit 2-17

Coordination

The emergency program managercoordinates the response and recoveryactivities of departments andorganizations involved in emergencies.This particular task will vary amongjurisdictions because of legal authoritygranted to the emergency programmanager and the relationship betweenthe emergency program manager and thejurisdiction’s executive. As described inan earlier section, one role for theemergency program manager is to serveas chief of staff to the responsibleexecutive, be it a city manager, mayor,county executive, or governor. The taskof coordination among agencies andindividuals receives coverage in UnitsThree, Four, Five, and Six.

Hazard Mitigation

Participating in the mitigation ofhazardous conditions before the impactof a disaster or during disaster recoveryis a relatively new role for the emergencyprogram manager. In this task, themanager provides oversight andmotivation to departments and agenciesto carry out their duties in ways that avoidor minimize potential emergencyconditions. Popular means of mitigatinghazards include floodplain management,developing land use and building codes,and effective disposal of hazardouswastes, for example. Unit Three willdescribe his task in detail.

Legal Authority

The emergency program manager isresponsible for seeing that all emergencytasks are carried out within the legalauthority provided by the jurisdiction forthe emergency office. This will involvethe review and update of emergencymanagement laws as described in UnitThree. The emergency program manageralso has a responsibility to participate in,and contribute to, the legislative andregulatory process as it relates toemergency management. This role isespecially important in mitigation, asdescribed in Unit Three, and in recovery,as described in Unit Six. For example,the participation of the emergencyprogram manager in regulatoryproceedings may well prevent theintroduction of a hazard into thejurisdiction through zoning ordinances orother legal measures.

Information

The emergency program manager is theprincipal source of information onemergency management—what it is andwhat it covers. An important task of theemergency program manager, therefore,is to develop and implement publicinformation and public relations activities.The program manager does this bycommunicating effectively withindividuals, groups, and the media. Thepurpose of such public information andrelations is to gain understanding,acceptance, and support of emergencyplanning and programs. In this course,public information methods are describedin Units Three and Four.


Unit 2-18

Administration

The emergency program manager is theadministrator of the jurisdiction’semergency program. The tasks ofadministration include budget andfinance, personnel, programs, supplies,and reporting systems. Unit Seven of thiscourse describes these components ofmanaging emergency management.

Training

Training for self and others is a task ofthe emergency program manager. Theprogram manager must be alert totraining opportunities, identify trainingneeds, and develop, participate in, andprovide training programs. The generalpublic may be included in any of thesetraining programs which range from homestudy courses to emergency simulationsand exercises. Unit Seven describestraining opportunities and responsibilitiesfor the emergency program manager.

Change and Improve

The emergency program manager mustfunction effectively in a changingenvironment. This task is not the specifictopic of any section of this course;however, the course itself is evidence ofthe importance of the task.Comprehensive Emergency Managementis a change from earlier concepts of civilpreparedness that reflects a newenvironment for the job of the emergencyprogram manager. One result of thischange is to enhance the role of the localemergency program manager byincreasing the scope of responsibility andparticipation of the program manager in

the affairs of the community. New areasof concern for the emergency managerinclude mitigation and recovery. As youwill learn in the Units that follow, thesenew responsibilities offer the opportunityfor the emergency manager to becomemore involved in the community. Thisincreased involvement can result ingreater recognition of the importance ofyour job, enhanced professionalismamong your colleagues, and improvedmanagement of emergencies in yourjurisdiction.


Unit 2-19



1.) What local official is usually empowered to request disaster assistance?

2.) What is the first place to find a definition of the tasks and responsibilities of theemergency program manager?

3.) Why has the position of emergency program manager become more visible to thepublic in recent years?

4.) Define your role as coordinator in emergency management?

5.) What is an important element in winning community support for the emergencymanagement program?

6.) Who are your local partners in emergency management?


Unit 2-20

7.) What three questions should you consider when building a base of local support foremergency management?

8.) What is meant by dual or multiple use of emergency management resources?

9.) What information should you expect to get from the chain of command portion of thelocal law or ordinance that deal with emergencies?

10.) What role should the emergency program manager have during an emergency?

11.) What is an essential element you should have in order to effect coordination amonggovernment agencies?

12.) Why should your title be compatible with titles of other department or agency headsin your jurisdiction?


Unit 2-21

13). What are the ten core functions of a comprehensive emergency program managerand his or her staff?


Unit 2-22

CORRECT ANSWERS TO SELF TEST REVIEW ................................ .... Review Pages

1). The chief executive of the jurisdiction .................................................................2-7

2.) The jurisdiction’s laws or ordinances ..................................................................2-7

3.) The emergency program manager is the experienced resourcefor dealing with natural disasters ........................................................................2-5

4.) Making certain that responsibility in emergencies isassigned and action taken without conflict or controversy..................................2-6

5.) Incorporate citizens into as many actionsof the program as possible..................................................................................2-9

6.) Local government agencies, local elected officials,private business, civic organizations, news media,industry, and individual citizens ........................................................................2-11

7.) What do you want from your citizens? What can theyexpect from you? How can you best make thepartnership work well? ......................................................................................2-11

8.) Equipment, staff, and procedures of nuclear civil defenseare useful for other types of emergencies...........................................................2-6

9.) To whom the emergency program manager reports,and who reports to the program manager ...........................................................2-7

10.) Chief of staff to the executive..............................................................................2-8

11.) The trust and support of the chief executive .......................................................2-8

12.) You need to be able to deal with agency heads on an equalfooting, and the job title makes an important first impression ............................2-10

13.) Hazard analysis and planning............................................................ 2-16 thru 2-18Legal authorityMaintain the emergency partnershipInformationEmergency response systemsAdministrationCoordinationTrainingHazard MitigationChange and improve


Unit 2-23



Unit 3-1

MITIGATION

UNIT 3


Unit 3-2

IntroductionAs you learned in the first unit, the fourphases of emergency management aremitigation, preparedness, response, andrecovery. Conducting HAZARDIDENTIFICATION and VULNERABILITYANALYSIS begins mitigation and isessential to the planning of all the otherphases. This chapter details toolsavailable to carry out mitigation inaddition to focusing on continuity ofgovernment in a national securityemergency as an important mitigationactivity.

What is a HAZARD? A HAZARD is anatural or technological force or eventthat could cause or create a disaster. Ahazard can cause the full range of naturaldisasters, major incidents, civil disorders,and resource crises that are the concernof the emergency program manager.

It would be ideal if your community wereprepared for all types of hazards.However, in most cases it is not practicalto be prepared for all types of hazards,as some may never occur in yourcommunity. For example, if you lived inthe Midwest, it would be impractical tofocus preparedness on hurricanes, as theprobability of one occurring is near zero.

Thus, to begin planning a program tomanage emergencies you must identifythose hazards which, if they occur, couldharm your community. This is thepurpose of a hazard identification andvulnerability analysis. It is a two stepprocess. First, you must decide whichhazards have the potential of affectingyour jurisdiction. That is the HAZARDIDENTIFICATION.

Second, you must identify how people,property, and structures will be damaged bythe disastrous event. That is aVULNERABILITY ANALYSIS. If people orstructures can be damaged by a hazard’simpact, they are vulnerable. Not all hazardsare applicable to all communities, but to findout which ones you need to prepare for, youmust do a hazard identification and avulnerability analysis.

Figure 3-1: Your community may face few ormany different hazards.


Unit 3-3

Hazard Identification and VulnerabilityAnalysis

Just thinking about it, you can tell thatsome hazards are possible for yourcommunity while others would probablynever occur. However, you should havemore than just your own opinion. goodway to judge what may happen in thefuture is to look at your community’shistory of disasters and majoremergencies. Which of them werecaused by hazards still present yourcommunity? A review of past disasterswill give you a good idea of what toexpect from these hazards in the future.Review your files to determine what typesof emergencies your community hasfaced over the years. Also, talk to citizenswho know local history, and to teachersin the local high school; community

college or university. Find out if anymajor emergencies or disasters occurredprior to when the records of yourdepartment were initiated.

Federal agencies are important sourcesof information about current and futurehazards. Through FEMA, you may beable to obtain maps and analysesdesigned to help you assess the relativelevel of risk to your community for thevarious natural hazards. Ask for this kindof help from the FEMA Regional Office,regional and national offices of theEnvironmental Protection Agency,Department of Agriculture, and U.S.Geological Survey, among others.

Figure 3-2: The first step in conducting a hazard analysis is to review your community’shistory of disasters and major emergencies.


Unit 3-4

Many of your colleagues in localAgencies will be able to help you withhazard information. Many communitieswith a flood hazard have a National FloodInsurance Program Coordinator, forexample. Others in public works, fire,police departments and voluntaryagencies may have good information.

As the emergency program manager youalso must be knowledgeable aboutPOTENTIAL FUTURE HAZARDS. Yourreview of disasters may not provide muchinsight into future hazards, so you needto take additional steps.

Potential hazards are of two types: thosethat may be brought into the communityand those that now exist but have notbeen recognized as hazards. To identifythe hazards which may be brought intoyour community, your task is to constantlyobserve the changes which take place. orexample, have high rise apartments beenbuilt recently? Is there a possibility of amajor high rise fire which did not exist ayear or two ago? Is there a nuclear powerplant which just went into operation nearyou? Has recent development increasedstormwater runoff from roads and parkinglots? In other words, are there nowhazards which did not exist few yearsago?

For the newly recognized hazards, youwill have to look at the history of thecommunity to see if these newdiscoveries suggest possible hazards inyour area. Among the most dramatic newhazards are toxic wastes. Chemicalwastes disposed of improperly areappearing to threaten people andcommunities -- their health, drinkingwater, and livelihood. Another exampleof new-appearing hazards is subsidencefrom abandoned mining. Mine shafts,

long ago forgotten, threaten communitieswith the sudden collapse of the earth’ssurface, other structures which were builtover them. And, of course, there isalways the threat of a newly-discoveredearthquake fault. Finally, a new housingdevelopment may be built downstreamfrom a dam or close to a river thuscreating a hazardous situation for thenew residents.

In looking to the future, talk about theearlier days of the community with somelong-time residents. Do they recall a now-closed manufacturing plant of some sortthat might have left behind its toxicwastes? Is the old town landfill nowclosed? In short, what remnants of thepast life of the community can becometomorrow’s hazards?

Four questions to ask about each hazard:(1) Could this hazard affect yourjurisdiction? (2) Is this hazard a significantthreat to your jurisdiction? (3)Approximately how often does this hazardoccur in your jurisdiction? (4) What is yourbest estimate of the total population thatcould be seriously affected by this hazard?


Unit 3-5

Vulnerability Analysis

The second step in determining thehazards for which your community mustprepare is the VULNERABILITYANALYSIS. Simply put, if a disasterstrikes, who or what will be affected andhow badly? That is the vulnerability ofyour community.

To assess the vulnerability of yourcommunity, you need to review eachhazard identified in the hazard analysisand what effect the emergency ordisaster caused by the hazard will haveon your community. For example, tworivers have flooded every 20 yearsaccording to an historical analysis. Thepotential vulnerability, therefore, is equal.One river, however, flows through thebusiness center. The other through afarming region. Is the vulnerability ofeach community the same?

Probably not. While many factors need tobe taken into account in a formalvulnerability analysis, it is likely that aflood in the business district would causeconsiderable economic loss any time itoccurred. The flooded farm lands may ormay not experience significant crop loss,depending on the season of the year. Inthe farming river flood, few lives are likelyto be in jeopardy. The city flood mightrequire evacuation and efficient searchand rescue to protect lives.

As seen in this example, the vulnerabilityof the community is defined as thepotential for death and injury to peopleand economic loss to individuals,organizations, or government caused bya disaster.

Your job in doing a vulnerability analysisis to take each hazard, starting with thehighest likelihood ones, and assess thevulnerability of your jurisdiction. Thepurpose in doing a vulnerability analysis

Figure 3-3: Keep your eyes open for events which may be hazardous for your community.


Unit 3-6

is to identify what hazards are the “worstthreats” and should have priority in yourmitigation efforts and preparednessplanning.

To do this, you should keep severalthings in mind. As stated in the definitionof vulnerability, potential HUMAN LOSSand ECONOMIC LOSS are keyconsiderations of vulnerability. As youexamine potential economic loss,buildings and their contents are obviouslyprimary concerns. Crop or range landdamage in agricultural areas is anotherform of potential economic loss.

Looking at the vulnerability of peoplerequires an assessment of where peoplelive and work. Here you will want toconcentrate on not only the generalpopulation, but also special populations.The special populations are the peoplewho, in the event of an emergency, willrequire special provisions and attention.

Thus, you are going to want to arrangefor their treatment in your emergencyplans. Special populations include schoolchildren, the elderly, residents of nursinghomes, disabled citizens in special carefacilities, special language groups, etc.,etc. Your vulnerability analysis shouldidentify the locations of these people andthe hazards to which they are vulnerable.

This will help you in detailing in theemergency plan what special tasks arenecessary to provide for their safety.

Another consideration in estimating thevulnerability of your jurisdiction tohazards is existing mitigation orpreparedness capabilities. For example,if there is a dam that was constructed asa flood control measure, then yourvulnerability to flood damage is probably

reduced. However, you now have somevulnerability to a new hazard, damfailure. Similarly, tornado shelters anddrills will reduce the vulnerability ofpeople to loss of life but not economicloss.

In addition to previously implementedmitigation capabilities, preparednessresources will reduce vulnerability. Tocomplete the vulnerability analysis, youmust understand and catalog the in-placehazard reduction efforts.

A final factor to remember in doing avulnerability analysis is to get help! Allthe federal, state, county, and localagencies noted above as valuable in thehazard identification may be useful inestimating vulnerability. Also rememberthat the purpose of the vulnerabilityanalysis is to help you know for whathazards to plan. Do your best to estimatethe most vulnerable areas and people.Then set forth to make a plan. As youplan, you are likely to refine your hazardidentification and vulnerability analysesas you discover more information on thehazards and the means for reducing theireffects. That is the way it should be.

In summary, hazard identification dealswith causes of potential emergencies ordisasters. Vulnerability analysis dealswith what is most likely to happen topeople and property in thoseemergencies or disasters. Both theseconsiderations are vital in helping youdefine the elements of the plans you mustmake to mitigate, prepare for, respond to,and recover from the emergencies ordisasters which threaten your jurisdiction.Your Hazard Identification andVulnerability. Analyses are the first stepsin planning our emergency managementprogram.


Unit 3-7

Keeping Your Hazard IdentificationCurrent

In keeping your hazard identificationcurrent you are primarily concerned withtechnological hazards. It is less likely thatyour community would suddenly becomevulnerable to new natural disasters if it isnot currently susceptible to them. Thereare exceptions, but the potential fornatural hazards generally does notchange from year to year.

Therefore, it is important that you monitoractivities in your community, especiallynew high rise buildings, industrial plants,and other types of new constructionwhich may possess a potential hazard foryour community. New activities also canincrease vulnerability to new hazards.For example, an industry in yourcommunity may begin to use certaintypes of hazardous chemicals or, worseyet, may begin to dispose of them in animproper manner. A new agricultural dammay pose a new threat to residencesdownstream. A new road may divertadditional rain water runoff into a stream,exposing a business area to additionalflood risk.

The list could go on, but it is important toremember that your job as an emergencyprogram manager is not one in which youcan just sit back and wait for anemergency or disaster to happen. One ofyour jobs is to keep your eyes open to allthat is happening in the community thatcould become a hazard and result in anemergency situation.


Unit 3-8

THINGS TO DO

The following is a list of possible hazards for your community. First, add to the list any othersthat might occur in your community. Next, examine each hazard using the informationobtained from the state geologist, state public health, nearest U.S. Geological Survey office,National Weather Service Office, or other appropriate source of information. Do the hazardshave a high, medium, low or no likelihood of being a threat to your community? Put youranswer in the column headed Likelihood. For example, if you live in Hawaii you would put “no”beside snow and ice storm. If you live near a river or on a flood plain, put high, medium, orlow based on your conversation with the National Flood Insurance Program coordinator.

Look at the next column (Vulnerability). What is the vulnerability of your jurisdiction to thishazard? Given all you know about the vulnerability of your community, does the hazardpresent the threat of a disaster or just a routine emergency? Put an answer in the column.

In the final column provided, check those hazards that represent “Worst threats” to yourcommunity. The “worst threats” are those hazards with threats that have high or medium (a)likelihood of happening, or (b) disaster vulnerability. These are the hazards on which you willwant to concentrate first.

Possible Hazard Likelihood Vulnerability Worst ThreatsTornadoFloodHazardous Materials Dumps/ StorageRadiological IncidentUrban FirePower Shortage/FailureWinter Storm/Ice StormAircrashWater Supply ContaminationHurricane/Tropical StormEarthquakeFlash FloodVolcanoDroughtChemical/Biological WarfareHighway/Transport AccidentsMudflowDam FailuresWildfireAvalanche/LandslideTsunamiCivil DisorderSubsidence


Unit 3-9

How Well Have You Learned?

SELF TEST REVIEW

Answer the following questions to test your knowledge of this part of Unit 3. Read eachquestion carefully, then write in the answer that you think is correct. Answers can be foundon page 3-11.

1. What is a hazard?

2. What are two types of potential future hazards?

3. What is the first stage of mitigation?

4. What is the purpose of a hazard analysis?

5. What is the purpose of a vulnerability analysis?

6. What are the two major types of loss which occur in a disaster?


Unit 3-10

7. What are some sources of information you should use while preparing a hazardanalysis?

8. Why should you identify special populations in the vulnerability analysis?


Unit 3-11

CORRECT ANSWERS TO SELF TEST REVIEW ................................ ......Review Pages

1. A hazard is a natural or technological force or eventthat could cause or create a disaster ...............................................................3-2

2. Potential hazards may be newly brought into the communityor may already exist but not be recognized as hazards ....................................3-4

3. Hazard and vulnerability analyses.....................................................................3-2

4. To find out which hazards can strike .................................................................3-2

5. To find out what damages would occur .............................................................3-6

6. Human loss and economic loss.........................................................................3-6

7. Information sources include: reports on past disasters,local citizens, high school or college teachers,federal agencies, neighboring emergencyprogram managers, officials in your own jurisdiction ........................................3-4

8. To detail in the emergency plan what special tasks arenecessary to provide for the safety ofthese citizens.....................................................................................................3-6



Unit 3-12

Emergency MitigationMitigation efforts are those that try toeliminate or reduce the impact of hazardswhich exist within a community and are athreat to life and property. You will findthat most mitigation efforts are theprimary responsibility of otherdepartments of local government. Theyare not often the direct responsibility ofthe emergency program manager.

That does not, however, mean that theemergency program manager lacks a rolein mitigation. On the contrary, theemergency program manager has crucialroles in mitigation—that of motivator,coordinator, and monitor.

The role of the emergency programmanager in mitigation is to be theconscience of emergencies. You must bealert of risks and monitor opportunities toavoid hazardous conditions. No otheragency or organization in government orthe private sector has he responsibility tolook at all hazards and all risks. No otheragency or organization has the mandateto protect the public against anyemergency condition. The emergencyprogram manager, under the ideasdeveloped earlier in the unit onComprehensive EmergencyManagement, can have a role incoordinating every kind of emergency.

Above all, the emergency programmanager is the person with the broadscope of responsibility to assure that thecommunity does not do anything toincrease the chances of an emergency.

How do you do this? You monitor thepossible hazards in the community, youmotivate action on mitigation, and youcoordinate available tools and techniquesused by government agencies andprivate group to carry out mitigation.There are many tools that can be used tomotivate efforts to reduce emergenciesand be the conscience of the communitywhen it comes to hazardous conditions.

Tools of Mitigation

As with all phases of emergencymanagement, your principal tool is theauthority vested in you by a local law orordinance. The local law derives itsauthority from a state civil defense oremergency management law. The statelaw gives your local jurisdiction the rightto enact whatever ordinances or laws itneeds, so long as they stay within thelimits of authority granted by the state.

Laws, then, are one tool of mitigation. Allthe power to mitigate is not going toreside in your local emergencymanagement ordinance, but all the legalresources you need to avoidemergencies should be available in localordinances.

Let’s look at why this is true.

Typically, laws are among the mostcommon ways communities attempt tomitigate emergencies, especially in thefollowing areas:


Unit 3-13

• Zoning ordinances• Building codes and enforcement• Public health ordinances• Fire regulations• Hazardous materials ordinances• Dam inspection ordinances• Traffic codes• And many others

Even with just these, few examples, youcan readily see that many other people inthe community have responsibility formitigating hazardous conditions.Mitigation, although it is seldom calledthat, rests with the departments whichdeal with hazards on a day-to day basis.For example, the fire apartment isresponsible for enforcing the fireregulations, and the building inspector isresponsible for enforcing the localbuilding codes. All these laws serve tomitigate hazards.

Thus, as the emergency programmanager, it is your job to work with thevarious agencies or departments whohave direct responsibility in these areas.

Your job with respect to mitigation isprimarily to advise and initiatesuggestions or ideas to departmentheads on hazard mitigation opportunities.As you learned earlier in this unit, youmust be aware of developments in yourcommunity which could lead to anemergency. You should keep thedepartments informed of these potentialhazards. In addition, you should workwith the various departments tostrengthen local laws or to pass newones if they are needed to mitigateemergencies.

Figure 3-4: Mitigation efforts are those which try to eliminate or reduce the impact of ahazard, such as the traditional lightning rod.


Unit 3-14

THINGS TO DO

Look at the community’s history ofemergencies. What damages couldhave been reduced if certain mitigationmeasures were in place? Find out ifthey have been enacted since theemergency. Then meet with the headsof related government departments andagencies. Discuss with them the laws orregulations in the mitigation area forwhich they have responsibility.Determine which areas may needadditional regulation and which onesare adequately covered. Finally, askothers what alternative tools areavailable, other than regulations, tomitigate a hazard.

Case studies and other information areavailable from state governments andfrom FEMA’s Hazard Mitigation Staff onhow communities have actually reducedtheir exposure to future losses.

Many tools other than ordinances areavailable to help mitigate emergencies.Some help you to directly reduce theeffects of the hazard. For example, thereare several direct ways at hazards arechanged by STRUCTURAL MEASURES.Levees along the river keep flood waterswithin the banks. Dams upstream holdback storm water runoff. Strongercontainers, built to withstand accidentalpunctures, help railroad cars more safelytransport hazardous materials.

FINANCIAL INCENTIVES ANDDISINCENTIVES also can work to keepthe community safe from impropertreatment of hazards. They generally takea form of tax levies or abatements. Leviesare used to discourage production of

hazardous conditions (like hazardouswastes) and the latter are used toencourage mitigation treatment ofhazards (like safe waste disposal). Achemical manufacturing plant, forexample, can create a hazard that wouldhave to be handled by the localemergency services. Some jurisdictionshave placed an additional tax levy on thecompany to offset the increased cost ofpreparedness. Other locales required thecompany to have its own emergencyequipment, and demonstrate throughexercises that it will work in cooperationwith the city’s emergency serviceorganizations.

Information is also a key tool ofmitigation. In some areas HAZARDDISCLOSURE REPORTS are required ofany real estate transaction occurring inthe vicinity of a hazard. If a house is inthe floodplain, the potential buyer needsto know the risk. LABELING of hazardmaterials, similarly, can go a long waytoward improving their handling.

PUBLIC INFORMATION and communityrelations are vital parts of any overallmitigation strategy. People need to beinformed about the possible alternativesavailable when dealing with hazards.Your role as a teacher and trainer, whichyou will learn about later, includes notonly what to do after a disaster strikes,but also the duty to teach the communityabout how to avoid an emergency. Oneway to do this is to play the role ofmitigation advocate before the citycouncil or other policy-making boards.Presentations to civic groups andprofessional societies is another way toget the mitigation message out.

LAND USE PLANNING is, perhaps, themost frequently found tool of mitigation.


Unit 3-15

In the NATIONAL FLOOD INSURANCEPROGRAM (NFIP), the safe use offloodplains is a long-term goal, and landuse planning is the path to securing themost harmonious treatment of land forcommerce, residences, and recreation.

Among the mitigation components of aNFIP is RISK MAPPING in whichcommunities have their floodplainsassessed to determine possible floodlevels. In some circumstances, housesand businesses that meet certain criteriaare completely RELOCATED out of thefloodplain. Land in he floodplain is thenused for less vulnerable purposes, forexample, recreation. Where possible toprotect an existing structure that cannotbe moved, FLOOD PROOFING isundertaken.

A key part of land use planning is thelocal planning commission and itsrequirement for site plan reviews. This isan important point of possibleintervention in unsafe development of thecommunity. Your role as a mitigationmotivator could lead you to stay incontact with the planning commission inorder to be alert to development plansthat will, some time in the future, put astrain on your emergency responsecapabilities. New types of housing,businesses, manufacturing plants, roads,etc., can place a burden on emergencyservices. Your role is to ask the question:“How will the decision to develop in sucha way affect the Safety of the communityin the next decade?”

Many laws and ordinances can be on thebooks without any effective way ofMONITORING or INSPECTING potentialviolators. These are two important tools

Figure 3-5: Using mitigation tools will build a strong foundation for your emergencyprogram.


Unit 3-16

of hazard mitigation. A good example ofthe use of these tools is the federal DAMSAFETY PROGRAM. For years, damswere constructed and certain safetyrequirements existed. But no agency wasresponsible for inspecting the thousandsof large and small dams across thecountry. In recent years, a federalinspection program has found manydangerous and unsafe dams. Because ofthe use of the inspection tool, theprogram is certain to mitigate future floodand dam-break emergencies.

PROFESSIONAL TRAINING is anothertool of mitigation. Drivers of hazardousmaterials trucks, for example, can betaught special response techniques thatwill make them better able cope with anemergency.

These mitigation tools illustrate ways you,the emergency program manager, caninfluence mitigation actions in yourcommunity. Your role is to inform, toquestion, to negotiate, and to motivate.You need to know where technicalexpertise exists in our community, in stategovernment and in federal agencies andhow to use it. You need to bring togetherthe agencies and organizations necessaryfor carrying out day-to-day emergencymitigation in order to get them to workcooperatively in pursuit of public safety.

Above all, your role in mitigation is part of,and equal to, your roles in preparednessand response. You build bridges. You jointogether groups for a goal that few canargue with: improved health and safety.

Mitigation partnerships, however, areperhaps the most difficult to create andsustain. Creation is often difficult becausethose who may be a target of newregulations look upon a partnership as

joining forces with the enemy. Continuationof mitigation partnerships is difficult becausethe participants often lose interest if there isa sense of immediate danger.

POST DISASTER RECOVERY is animportant time for mitigation because thesense of danger for the jurisdiction is veryreal. A disaster often makes clear theopportunities available for hazard mitigation.The recent losses in a disaster can serve asa guide for future action.

Major disasters with Federal Governmentrelief may enable the emergency programmanager to participate in or support theInteragency Hazard Mitigation Team effortsto identify ways of minimizing future losses.The Interagency Hazard Mitigation Teamcontributes significantly to state hazardmitigation planning, efforts which arerequired as a condition for future assistanceunder a Presidentially declared majordisaster.

The Interagency reports provide crucialtechnical assistance as well as an importantadvocacy position in support of mitigationefforts. As a result, the Interagency HazardMitigation Team is a valuable tool ofmitigation following a major disaster.

THINGS TO DOMitigation actions must be cooperative efforts ofmany local and state government agencies. Many ofthese agencies are not the people with whom theemergency program manager has traditionallyworked. New relationships will have to be created.This exercise is designed to alert you to newpartners in the mitigation phase of emergencymanagement.

Go back to your hazard identification and focus on allthe hazards you identified as present (any level oflikelihood) in your community. Next, list the local,state or federal agency you think might haveresponsibility for the hazard. If you do not know now,make a note to find out. These are your partners inmitigation.


Unit 3-17

Mitigation StrategiesOne of the principal problems with themitigation phase of emergencymanagement is its priority with respect tothe other phases—preparedness,response, and recovery. It is usually easyto see the need for a preparedness plan,the need for the ability to respond to anemergency, and the need for acommunity to be able to recover from adisaster. As a result, mitigation frequentlygets less attention than other phases ofemergency management.

With the local amount of money availablefor emergency management usuallybeing tight, how much should be spent onmitigation? Usually, money spent onmitigation comes from a fixed budget.Therefore, focusing on mitigation meansless money available for preparedness,response, and recovery. For this reason,mitigation is often the phase ofemergency management for which mostcommunities do not have adequateprograms.

Mitigation, however, is the one phase ofemergency management where creativeplanning can substitute for money or helpyou obtain special funding. Thisapproach can permit a jurisdiction tofinance certain emergency managementprograms themselves with only a smalladditional burden on the citizens. A goodexample of this type of funding is the“Emergency 911 “ bill enacted by manystate legislatures. Under such a bill, eachcounty in a state must establish theemergency 911 phone number for alltelephones. The typical bill establishes a911 “fee” of $.10/month to be paid by alltelephone customers to finance the 911program.

Money should not be at the heart of yourmitigation efforts. There are a wealth ofalternatives to expensive programs.Remember, the goal of mitigation is toavoid hazardous circumstances. If youcan avoid them in the first place, you willneed far less money for remedial effortslater on.

Mitigation Alternatives

There are several different mitigationstrategies, some of which require money,but most of which substitute awareness,foresight, and creative efforts for money.Several of these mitigation strategies areexplained below. Read them carefully.Some may give you ideas on how toapply mitigation to your community.

1. To prevent the creation of thehazard in the first place: This is themost basic mitigation strategy, and iscarried out through a community’s fireregulations, building codes, and otherordinances. For example, therequirement that all public buildings havesprinkler systems is a mitigationtechnique against major fires. Theinspection of new buildings to make surethe construction conforms to the localbuilding codes is a way of mitigatingagainst improper construction whichcould result in a major emergency suchas a fire or building collapse.

2. To reduce or limit the amount orsize of the hazard manufactured orbrought into being: For example, a 5mph speed limit in a school zone reduces


Unit 3-18

the possibility of a child being struck bya car. If hazardous chemicals are usedby a manufacturing plant, there may be alimit as to the amount which may be onhand at any one time. Improved buildingcodes offer similar long-term benefits.

3. To separate the hazard from thatwhich is to be protected: There areseveral ways in which this can be one.One is to restrict such things as thehazardous use of chemicals to onlyspecific areas within a community. Forexample, only areas which are zones forparticular industrial use are permitted touse hazardous chemicals. Another way isto surround the hazard by some type ofcontainment structure. The banning ofvehicles carrying explosives from denselypopulated areas is still another method ofseparating the hazard from thecommunity. Finally, efforts to restrict ormodify building in floodplains aredocumented ways of reducing losses.

4. To prevent the release of thehazard that already exists: Impoundingnuclear wastes is a good example ofpreventing the release of a hazard whichalready exists.

5. To modify the basic qualities ofa hazard: For example, suppose thatdangerous chemicals were packagedwith a neutralizing agent right next to thechemicals. If the chemical container weredamaged, the neutralizing agency wouldautomatically release, thus minimizingthe toxic effects of the spilled chemical. Inanother case, a distinctive smell is addedto odorless liquid propane gas so thatpeople can tell if it is present and thusavoid anger.

6. To modify the rate or spatialdistribution of release of the hazard:Suppose that the federal dam safetyinspection program detected a crack in adam, or some other sign of instability.The water behind the dam could belowered gradually so as not to endangerthe environment downriver and relievethe pressure on the dam until repairs aremade. Stabilizing a potential landslide isanother example. Finally, the use oflevees reduces damages in some areasand increases them in others.

7. To engage in research to attacka particular hazard: Industry and thefederal government put money intoresearch to develop ways of makingmaterials (like building materials) andproducts (like autos) safer.

8. Information dissemination:Public information is key to preventing awide range of emergencies. Thedisclosure of potential hazards throughreports to potential buyers of land andstructures or users of chemicals is oneform of public information that can berequired.

Summary of Your Role in Mitigation

The role of the emergency programmanager in community mitigation varies,depending upon the hazards, the skills ofthe emergency program manager, andthe specific responsibilities of othergovernment departments and agencies.Regardless of how active you are in theactual mitigation efforts of yourcommunity, it is your responsibility as theemergency program manager to monitorhow other governmental departments arecarrying out their jobs as they affect thesafety of the community. Your role also is


Unit 3-19

to motivate mitigation through hazardawareness, coordinate agencies thathave the formal responsibility formitigation, and ensure continuingenforcement of hazard reductionmeasures.


Unit 3-20


Answer the following questions to test your knowledge of this part of Unit 3. Read eachquestion carefully, then write in the answer that you think is correct. Answers be found onpage 3-22.

1. What is mitigation?

2. What are the tasks of the emergency program manager in mitigation?

3. How does the emergency program manager perform his or her role in mitigation?

4. List three forms of mitigation that can be accomplished by local laws or ordinances.

5. List four tools other than laws that can be used for mitigation.

6. Which of the following is a structural measure for mitigation?A. Flood insuranceB. Storm sheltersC. Preparedness plansD-. Levees


Unit 3-21

7. Describe the purpose of financial disincentives in emergency mitigation.

8. What is the role of public information as a tool for mitigation?


Unit 3-22

CORRECT ANSWERS TO SELF TEST REVIEW ................................... Review Pages

1. Efforts to eliminate or reduce the damaging impact of hazards...........................3-12

2. To advise and initiate suggestions or ideas to departmentheads on hazard mitigation opportunities; to monitormitigation efforts of agencies and to motivate mitigationthrough hazard awareness ...................................................................3-12 and 3-19

3. By coordinating the available tools and techniques used bygovernment agencies and private groups; by alertingagencies to opportunities, monitoring their performance,coordinating agency responsibilities, and ensuringcontinuing enforcement of hazard reduction measures.......................................3-12

4. Common legal efforts to mitigate include: zoning ordinances,building codes, public health, fire regulations, hazardous materials,dam safety inspection, traffic codes .....................................................3-12 and 3-13

5. Financial incentives and disincentives, hazard disclosurereports, public information, land use planning, risk mapping,monitoring and inspecting, professional training, andstructural measures ..............................................................................3-14 and 3-15

6. D. Levees ............................................................................................................3-14

7. To discourage the development or production of hazardousconditions. For example, a high tax on a chemicalmanufacturer for storing hazardous materials might convincethe manufacturer to store them elsewhere. If the materialsremained, then the high tax can be applied to increased emergencypreparedness to cope with the risk of stored hazardous materials .....................3-14

8. Public information for mitigation is useful for sharing withcitizens the possible alternatives for dealing with hazardousconditions and then applying pressure for implementing mitigation....................3-14



Unit 4-1

PREPAREDNESS

UNIT 4


Unit 4-2

IntroductionIf an explosion resulted in a major fire inyour area right now, while you arereading this sentence, would you beready? Would your community getenough fire and medical units, set upshelters for housing the homeless,prepare to evacuate threatened citizens,or keep curious spectators or vandalsfrom entering the disaster area? Wouldyou know what to do? Do you have aplan? You had better have one—that'syour job!

EMERGENCY PREPAREDNESS isbeing ready to react promptly andeffectively in the event of an emergency.Being prepared means that you have aplan of action. You know what to dobefore the emergency occurs. In somecases, such as a flood or hurricane, youmay have an early warning, which willgive you several hours to act. However,often you will have no prior warning of animpending emergency, such as withearthquakes, tornadoes, explosions, ormajor fires.

You must be prepared for anyemergency, especially those which strikewithout notice. To be prepared, you musthave a PLAN. You must know whatRESOURCES are available to you, andhow to utilize them. You must also bereasonably certain your plan will work. Inthis unit you will learn about the legalauthority for your job, how to developyour own emergency preparedness plan,and how to inventory and catalogue theresources available to you.


Unit 4-3

Your Job and the Law

When a disaster occurs you must moveswiftly according to your preparednessplan. Even though you may be in charge,you cannot do anything you want or actirresponsibly. Your actions must beconsistent with those provided for by thelaw. There are FEDERAL, STATE, andLOCAL LAWS which govern what youcan do. It is extremely important that youact within these laws, so that you arelegally carrying out your duties and arenot subject to criminal or civil law suitsbecause you acted beyond your authorityas specified by the federal, state, or locallaws.

Federal Law

The Federal Civil Defense Act of 1950,Public Law 920, 81st Congress asamended, is the legal basis for national

Figure 4-1: Law is the basis for allemergency preparedness and response.

civil defense and emergencymanagement in the United States. ThisAct of Congress establishes that theresponsibility for national civil defense

and emergency management is vestedjointly in the federal government, yourstate government, and the politicalsubdivision in which your responsibilitylies. In other words, you are a PARTNERwith the federal and state governmentwhen it comes to the actions you musttake in disaster situations.

State Law

Each state must have its own laws whichare consistent with the federal law if theywish to qualify for federal aid andassistance. This means that the statelaws must be compatible with, or requirethe same basic course of action as, thefederal law. In other words, the actionsrequired by the state are not in directconflict with those required by the federalgovernment. All states have such laws,although they vary in wording from stateto state.

Your state emergency management orcivil defense law establishes what stategovernment will do in case of disaster. Indoing so, it defines the specificresponsibilities of the local politicalsubdivisions within the state and givesthem the authority to pass localemergency management laws orordinances.


Unit 4-4

Some state laws are PERMISSIVE whenit comes to the specific laws of thepolitical subdivisions such as cities andcounties. Permissive laws leave thedecisions up to the local jurisdictions byusing terminology such as "may have,"“should have," or "authorized to have."The local government can then decidewhat is best for them. For example, thestate law may say "Each county isauthorized to have an emergencypreparedness manager." Thus, thecounty can have an emergency programmanager if they want, but is not requiredby law.

Other state laws may be very specific,and require certain action by i3 localgovernment. Such laws are calledDIRECTIVE, and use terminology suchas "must have" or "is required to have."For example, the state laws may say"Each county must have an emergencyprogram manager." In such cases, thecounty must have such a manager, andcannot decide otherwise.

Local Laws

Every local jurisdiction such as a city orcounty needs its own emergencymanagement laws to ensure the legality ofthe local emergency management program.Since each local jurisdiction may havedifferent specific needs or requirements, thelocal law or ordinance must be drafted withthe individual needs of the jurisdiction inmind. You can get guidance on these lawsfrom county, state, or federal emergencyoffices, but you will have to tailor them toyour jurisdiction.

The local law or ordinance gives you the legalauthority to operate. It should clearly defineyour authority, duties, and specificresponsibilities. It should also spell out exactlywho has final authority for emergencymanagement operations in the normal day-to-day operations of the local government. Thisperson also normally has the responsibility forthe planning decisions which affect futureemergencies as well as the final authority inactual emergency situations. This person isprobably a mayor, city manager, or countyexecutive.

Figure 4-2: Federal, state, and local governments are partners in emergency management.


Unit 4-5

THINGS TO DO

Get a copy of your local ordinance or law and read it carefully. After you have read theordinance, complete the following worksheet NOTE. Reading your local ordinance andcompleting the worksheet is extremely important.

Ordinance Item Included in yours? Ordinance No.and Section

1. Final authority for emergencymanagement decisions in normal day-to-day operations Yes No

2. Control of emergency operations Yes No 3. Authority of Emergency Program

Manager Yes No 4. Duties and responsibilities Yes No 5. Lines of succession Yes No 6. Provision for an emergency operations

plan Yes No 7. Penalty for violation of ordinance Yes No

If any of the items listed in this worksheet are not in your local ordinance, meet with yourlocal elected officials and city or county manager to have the local ordinance amended sothat all are included. If you do not have a local ordinance, one should be passed as soonas possible.

NOTE: You may wish to copy this sheet and use it as an on-the-job guide for futurereference.


Unit 4-6

Figure 4-3: The local ordinance mustprovide for a line of succession.

Most local laws also provide for a LINEOF SUCCESSION for elected officials.The line of succession designates whowill fill the position of authority if theperson with the primary responsibility forthat position is unavailable. Lines ofsuccession usually designate up to atleast three people. Such provisions in thelocal ordinances assure CONTINUITYOF LEADERSHIP in the community intime of emergency or disaster. Your locallaws should also specify that alldepartments of the local governmenthave their own designated lines ofsuccession.

On the federal and state levels, many ofthe laws are rather broad for they mustbe written to cover a variety of situationswithin very diverse political subdivisions.Local laws or ordinances can be morespecific, and spell out exact duties,actions, or requirements. One item locallaw should provide for is the

establishment of an emergencyoperations or PREPAREDNESS PLAN.The plan should describe in detail whohas the authority to do what in case ofdisaster. Most local ordinances providefor the establishment of such a plan. Theplan itself is not a law, but is a detaileddescription of the actions to be takenwhich are authorized under the law.

MUTUAL AlD PACTS are another type oflocal legal authority which will affect yourwork. A mutual aid pact is a legalagreement between two or more localjurisdictions to help each other in case ofemergency. The agreement is signed bythe heads of the governments involved.Mutual aid pacts typically cover suchthings as free access across boundaries,the provision of resources and services,the extent to which the resources andservices will be provided, and otherpublic safety actions.

Figure 4-4: Mutual Aid Pacts mean moreresources than normally available can becalled upon in an emergency.


Unit 4-7

THINGS TO DO

Get a copy of a mutual aid pact and complete the following worksheet

Mutual Aid Pact Worksheet

Does your pact specify:

Item Included?1. The jurisdiction to which it applies Yes No2. Who has authority to declare an emergency? Yes No3. Who has authority, under what conditions, to implement the mutual

aid pact.Yes No

4. What resources are available under the act. Yes No5. Who has the authority to request aid from the other jurisdiction. Yes No6. Under what condition, if any, can aid be refused. Yes No7. Who is in command when neighboring units are in your Jurisdiction. Yes No8. Who is responsible for compensation benefits for neighboring units

in your Jurisdiction.Yes No

9. Under what conditions can the pact be terminated or amended. Yes No

Usually the rules and standards of mutualaid pacts also define who will declare thata state of emergency exists, who will be incharge of the focus and resourcesreceived, and who will providecompensation and death benefits for thoseinjured or killed while rendering aid.

The provisions of some mutual aid pactsare used on a regular day-to-day basis bymany police and fire departments. Firedepartments commonly respond to fires inneighboring jurisdictions under mutual aidagreements. If a neighboring firedepartment responds to an emergency inyour area, your mutual aid pact shouldindicate who is in control of that unit whilein your jurisdiction and who is responsiblefor the compensation of that unit.

It is not necessary that every jurisdictionhave a mutual aid pact with a neighboringlocal government. If you do not have one,you will need to analyze your local situationto see if a mutual aid pact would make yourjob easier. You will learn how to performthis analysis later. Perhaps you think anagreement is not needed because yourlocal community is self-sufficient. Youshould, however, be willing to share yourresources with your neighbors. You neverknow when you will need help or be askedto provide it. For example, a tank truckcarrying propane gas could overturn at theborder of your jurisdiction, but still in yourarea. Rescue units from your neighbor maybe stationed closer than your own. Publicsafety interests would require yourneighbor to respond, but without a mutualaid pact that response would be uncertain.


Unit 4-8


Answer the following questions to test your knowledge of this part of Unit 4. Read eachquestion carefully, then write in the answer that you think is correct. Answers can be foundon page 4-9.

1.) What does emergency preparedness mean?

2.) What is the purpose of the Federal Civil Defense Act of 1950?

3.) What is the difference between directive and permissive emergency managementlaws?

4.) Why does local government need an emergency management law?

5.) What should be in a local emergency management law?

6.) What three authorities are usually provided by a mutual aid pact?


Unit 4-9

CORRECT ANSWERS TO SELF TEST REVIEW ................................ ... Review Pages

1.) Being ready to react promptly andeffectively to any emergency or disaster condition............................................4-1

2.) It is the legal basis for national civil defense and emergencymanagement and places joint responsibility on local, state,and federal governments...................................................................................4-2

3.) Directive laws tell governments what they must do;permissive laws only describe what they may do ..............................................4-3

4.) To ensure the legality of the emergency program.............................................4-3

5.) The law should establish an emergency managementprogram by defining jurisdictional needs, authority andresponsibilities, line of succession, continuity of leadership,and the establishment of an emergency preparedness plan............... 4-3 thru 4-5

6.) Who declares an emergency; who is in chargeof forces and resources; and who compensatesfor resources and damages................................................................. 4-6 thru 4-7



Unit 4-10

Emergency Operations PlanningAn Emergency Operations Plan (EOP)contains information on how citizens andproperty will be protected in a disaster orin a disaster-threatening situation. Itdescribes actions that may be requiredfor any natural or technological hazard. Itdetails the tasks to be carried out byspecified organizations at projectedplaces and times based on establishedobjectives, assumptions, and a realisticassessment of capabilities.

A local EOP is an absolute necessity.Without a plan, your emergencyoperations in time of need would be likethe quarterback of a professional footballteam coming to the huddle and saying,"Well, that didn't work, what should we trynext?" Without a plan, emergencyoperations can be chaos. Regardless ofhow many resources you have in thecommunity, without a plan to put them touse, they are of little value.

The emergency operations plandescribed in this unit emphasizes threerelated concepts.

First, plans work best within existingorganizational structures if they arecurrently responsive to nonemergencyduties. That is, if a job is done well everyday, it is best done by that organization inan emergency.

Second, crises should be met at thelowest and most immediate level ofgovernment. Plans call for local responsesupplemented, if necessary, by the nexthigher jurisdiction.

Third, voluntary response andinvolvement of the private sector(business, industry, and the public)should be sought and emphasized. Theemergency management partnership isimportant to all phases of natural andtechnological disasters.

An emergency plan built on theseprinciples will result in a guide forcommunity preparedness to carry out thebasic emergency functions shown on thefollowing page in Figure 4-6.

Figure 4-5: Without planning, probablynothing will end up the way you want.


Unit 4-11

TWELVE EMERGENCY FUNCTIONS

Warning & Communication

Notifying the public of probableimpending disaster in time to takeprotective action. Operation of allcommunications services for controlcenters and operational forces.

Public Information

Providing information and directions tothe public about appropriate protectiveactions.

Evacuation

Assisting people to move from the path ofthreat of a disaster to an area of relativesafety.

Emergency Welfare

Providing shelter, lodging, food, clothingand sanitation to the disruptedpopulation.

Emergency Medical Care

Offering appropriate health and medicalcare or services to the strickenpopulation.

Security

Protecting life and property, control ofmovement of persons and emergencyequipment necessary to protect personsand counteract the disaster situation.

Fire and Rescue

Deploying firefighting resources toprevent or contain fires and rescue orremoval of trapped or injured people.

Radiological Defense

Measuring, predicting, and evaluatingradiation to guide and protect the publicand emergency service workers.

Public Works/Utilities Repair

Temporary repairs to damaged systemsin essential or critical areas or facilities.

Disaster Analysis and Assessment

Monitoring and analyzing a disaster andassessing physical damage from adisaster. Collection of informationessential to recovery efforts and futuremitigation.

Logistics

Controlling transportation of people andsupplies as necessary to supportemergency functions.

Direction and Control

Management of a community's survivalrecovery efforts, and the operation itself.

Figure 4-6: Basic emergency functions in your community should be prepared to provide foryour citizens.


Unit 4-12

Getting Started—Preliminary Plans

To begin emergency operations planning,determine if your local government has anEOP. If you do not have a plan, start workon a preliminary one immediately. If youhave a plan, you are already started. Youcan use the ideas below to evaluate thecompleteness of your plan.

The purpose of a plan is to provide youwith a systematic way of responding toan emergency situation. A temporaryplan will not be as specific as your finalplan, but at least it will provide you with adirection for taking action if anemergency occurs. The following stepscan be used to develop a temporaryemergency preparedness plan.

STEP 1. Determine who is in charge incase of emergency. If you have a localemergency management ordinance, thismay already be done for you. If it is not,put it in writing. The temporary plan maystate that the local government's chiefexecutive is in charge but that theemergency program manager has theauthority to act on behalf of the executivein specific areas.

STEP 2. Designate an EmergencyOperations Center (EOC) fromwhich to carry on operations. Onelocation might be in the communicationscenter. used by the local police, firedepartment, or some other governmentagency which uses electroniccommunication systems on a daily basis.

STEP 3. List the government officialswho should be notified in case ofemergency. Determine the meansavailable to notify them and how tocommunicate with them throughout theemergency.

THINGS TO DO

Check yes only if there Is a high probabilitythat the emergency may occur. Forexample, if your jurisdiction does notcontain an airport and is not over adesignated flightpath, do not checkaircrash as there is not a high probability

Emergency Could Occur

Tornado Yes NoFlood Yes NoHazardous materials Yes NoCivil disorder Yes NoRadiological incident Yes NoMajor fire Yes NoPower outage Yes NoEnergy/fuel shortage Yes NoIce/snow storm Yes NoAircrash Yes NoBomb threat Yes NoWater supply contamination Yes NoHurricane Yes NoTsunami Yes NoEarthquake Yes NoVolcano Yes NoDrought Yes NoMudflow Yes NoDam failures Yes NoLoss of electric/water supplies Yes No

STEP 4. Determine which emergencysituations may occur in your area. Youshould consider this a temporary hazardidentification.

STEP 5. Develop a list of activitieslikely to be undertaken and resourceswhich could be of use for each of theemergencies identified in STEP 4.


Unit 4-13

THINGS TO DO

Get a copy of your emergencyoperations plan. If your localgovernment does not have one, followthe steps just outlined and develop atemporary plan as soon as possible. Ifyou already have an EOP, compare itto the temporary plan and refer to it asyou read the next section.

STEP 6. For each activity under -taken or resource utilized brieflystate who will do what in event ofemergency. For example, the policechief will be in charge of all policemanpower, as is normal, and will beresponsible for establishing barricades tokeep the public away from the scene ofthe emergency when the mayor orderscontrolled access to the scene. Yourtemporary plan simply puts the availableequipment and personnel on anemergency status. The temporary planalso will call for the legal authority in anemergency. (the city or county executive,for instance) to move to the temporaryEOC when he or she needs to havebetter contact with emergencyoperations.

STEP 7. Present the temporaryplan to your local government forapproval. Explain that it is a temporaryplan under which you can operate until acomprehensive emergency operationsplan can be written.

The preliminary plan will certainly not beas detailed as your final plan, but it will atleast provide some direction to help youact in an emergency and give you a list ofthe resources you can call upon for thoseemergencies which are most likely tooccur in your locality. If you complete the

seven steps suggested above, you willbegin to have an overview of commandand authority, the availability and use ofthe EOC, channels of communication,potential hazards, the emergencyorganizations and functions, and somestandard operating procedures forresponse.

Figure 4-7: Temporary plans can be veryuseful to the community.


Unit 4-14

THINGS TO DO

Select a few resources that you should plan to use In an emergency. Fill in the form belowwith a brief narrative that describes what should happen in case of an emergency. If youalready have a plan, do this exercise and compare it to the existing plan.

Temporary Plan for

(type of emergency)

Resource: Manpower or Equipment (item)

Responsible: Agency or Individual (Who)

(Does What)

(Where)

(When)

Resource: Manpower or Equipment (item)

Responsible: Agency or Individual (Who)

(Does What)

(Where)

(When)


Unit 4-15

The Emergency Operations PlanYour emergency operations plan (EOP)should be comprehensive. It should coverall aspects of emergency managementand all types of emergencies., In doingso, it should strive to achieve severalcharacteristics of flexibility, dual use,detail, consistency, andcomprehensiveness.

The plan described below is flexible. It isnot a fill-in-the-blanks format. It does notpresent a model. It is a series ofsuggested ways to construct a usefulplan.

The plan features dual use of resourcesin both emergency and nonemergencyconditions.

The plan consists of sections forindividual operational responders, thusallowing sufficient detail to carry outresponsibilities.

The plan consists of components thatfollow the same format, thus providingconsistency between parts of the planand among plans from neighboringcommunities.

Finally, the plan described belowinvolves all levels of government and theprivate sector.

There are three basic components to theemergency operations plan. The BASICPLAN serves as an overview of yourjurisdiction's approach to emergencymanagement, including broad policies,plans and procedures. The basic plan issupported by functional ANNEXES, thataddress specific activities critical to

emergency response and recovery. Thefunctions included in these annexes weredescribed in Figure 4-6. Hazard-specificAPPENDICES support each functionalannex (as necessary) and containtechnical information, details, andmethods for use in emergencyoperations.

How to Develop the Plan

The EOP should grow out of a planningprocess conducted by a planning team.This team should include representativesfrom each department and agency withan emergency mission and from eachnongovernmental group to which such amission should be assigned, such as thenews media. The chief executive of yourjurisdiction should designate you, theemergency program manager, as themanager of the planning effort.

Actually, completing the plan occurs in,. aseries of steps. While there are no hardand fast rules on plan development, thebasic plan is usually written first. Fromthat you identify the annexes necessaryto detail the plan. As annexes are written,necessary appendices will be discoveredand developed. Figure 4-8 provides abrief listing of steps to consider indeveloping your plan.


Unit 4-16

Steps to an Emergency OperationsPlan

1. Identify hazards.2. Review existing plans.3. Identify resources (organizations, mutual aid

pacts, etc.)4. Brief officials on the planning process.5. Consolidate findings of research.6. Develop drafts of basic plan, annexes, and

appendices;,7. Obtain comment of emergency program

staffon plan drafts and resource reviews.

8. Develop agenda and invitation lists for aseriesof planning meetings.

9. Review EOP, incorporating comments ofemergency management staff.

10. Establish planning committees in theplanning meeting, making assignments forfuture plan, annex, and hazard specificappendix development.

11. Assess emergency facilities, includingoperating center, shelter, and othernecessary facilities.

12. Work with planning committees to improveand refine functional annexes and hazard-specific appendices.

13. Review annexes and appendices submittedby planning committees.

14. Prepare or improve maps, charts, anddisplays.

15. Edit the EOP and produce final copies.16. Distribute to planning committees and

reviewing authorities.17. Conduct final planning meeting for review

and implementation.18. Present EOP to elected officials to obtain

concurrence and official promulgation.19. Print and distribute EOP.20. Distribute plan to all organizations with

responsibility or interest in emergencypreparedness.

21. Establish a program of progressively morecomplex exercises to continually familiarizeofficials with the plan.

22. Begin a cyclical review of the plan based onexercise EOP.

Figure 4-8: Steps to an EmergencyOperations Plan.

The Basic Plan

A plan begins with a series of statementsthat serve as the INTRODUCTION TOTHE BASIC PLAN. These include thePROMULGATION STATEMENT signedby the chief executive giving the planauthority; a FOREWORD that describesthe planning process, abstracts thecontents in an executive summary, andstates the goals of the plan; the TABLEOF CONTENTS identifying also annexesand appendices; INSTRUCTIONS onusing the plan, its intended audiences,the purpose of its sections, anddistribution; and a CHANGE RECORDnoting date and pages revised.

The basic plan should be treated as theumbrella document that draws togetherall other parts of the plan. Its primaryaudience is the chief executive and otherpolicy makers. Members of the publicmay find it useful.

The parts of the basic plan after theintroduction statement are:

STATEMENT OF PURPOSE: Thepurpose of the plan is to provide thecommunity with an effective and efficientemergency management operation whichwhen applied will provide the levels ofprotection for life and property andrecovery assistance which areacceptable to the citizens of thecommunity.

SITUATIONS AND ASSUMPTIONS: Thetypes of disasters or emergencysituations which may occur in thejurisdiction are described here. Wherepossible, include the amount of warningtime, the degree of damage which maybe expected or any specific situations


Unit 4-17

which may be peculiar to yourcommunity. For example, if you arelocated in the vicinity of a nuclear powerplant, you may wish to describe thevarious types of emergency situationswhich may occur from that particularfacility. Be realistic. Make validassumptions. The plan of operation formeeting these emergencies will be basedupon the assumptions made in thissection. The description of potentialdisasters should reference your Hazardand Vulnerability Analysis that should bepublished elsewhere. Finally, to completethe picture of the situation andassumptions of the plan, include a reviewof efforts undertaken to mitigate potentialdisasters.

ORGANIZATION AND ASSIGNMENT OFRESPONSIBILITIES: Now you get downto the "nitty-gritty" of the plan. Thissection deals specifically with how thejurisdiction will be organized to carry outthe plan. It is not how the plan will becarried out. This is a key section of yourplan, and will probably be quite lengthy. Itshould specifically define the roles oflocal officials in the emergencymanagement structure. Perhaps certain

officials are given specific assignments.The lines of authority between thevarious government officials, theemergency program manager, and theheads of the various governmentdepartments should be specified. Anorganizational chart could look likeFigure 4-9.

The organizational structure which isimplemented for a disaster situationshould be as similar as possible to thatwhich is used for day-to-day operations.However, it should allow for theexpansion and extension of duties toinclude such items as damageassessment, liaison with communitygroups, and emergency sheltermanagement. To the extent possible,personnel should continue to work withthe supervisor and associates that theywork with on a regular basis.

Emergency management is a communityresponsibility, not just a local governmentresponsibility. Therefore, theorganizational structure should alsoclearly identify those individuals ororganizations which have theresponsibility to coordinate resources

Figure 4-9: An example of organization of regular government officials for emergencyoperations. Only some of the required functions are shown.


Unit 4-18

which are outside the direct control of thelocal government. The organizationalstructure should also provide for adisaster public information function.

CONCEPT OF OPERATIONS: Thissection of the plan describes the rolesand relationships of governmentagencies and how they interact with eachother and the private sector. Discussedhere could be: interjurisdictionalrelationships among levels ofgovernment; curtailment of nonessentialfunctions during emergency conditions;general need for time-phase ofoperations (pre-emergency, emergency,and post-emergency); supporting plansand procedures as a basis for operations;expectations for training, exercising, andcritiquing; efforts directed towardmitigation and recovery; and generally, adiscussion of the decision-makingprocesses that affect emergencymanagement operations.

ADMINISTRATION AND LOGISTICS:This section should address managementof resources, general supportrequirements, and availability of servicesand support for all phases ofcomprehensive emergency management.The plan should establish policy forobtaining and using facilities, material,services and other resources required forany emergency management aspects.

PLAN DEVELOPMENT ANDMAINTENANCE: After completion of theplan, provisions should be established forreview, modification, acceptance, andapproval by the chief executive.Especially important will be thecontinuous review required to update theplan to reflect improvements needed as aresult of experiences in emergency

management and changing emergencysituations and assumptions.

AUTHORITIES AND REFERENCES: Theauthorities cited here should be thoselaws which provide the basis for acomprehensive emergency managementplan. Statutes, executive ordersregulations, and formal agreementswhich pertain to any type of emergencyshould be listed. All references whichprovide the basis for emergency planningshould be listed, such as generalplanning guidance, plans of otheragencies, plans of other levels ofgovernment, and the like. The citing ofreference materials, especially those ofother levels of government, is valuable,For example, the state may wish toreference regional and local plans, bothof which may be complementary to itsown plan.

DEFINITION OF TERMS: A list ofdefinitions should be given for termswhich are not commonly known as wellas those used in the plan which couldcause confusion if misinterpreted. Forexample, you may wish to define mutualaid, hazardous materials, or radiologicalemergency. The terms you choose todefine will depend upon the type ofcommunity in which you live.

Annexes to the Basic Plan

The purpose of an annex is to describeoperations for a particular function. Itdefines the function and shows howactivities of various participants in thefunctional organization are coordinated.The annex is action oriented. It is writtenfor, and preferably by, the personresponsible for controlling resourcesavailable to accomplish the objectives of


Unit 4-19

the function in any large-scaleemergency.

Figure 4-10 is an example of a list ofannexes. You will note that the basicemergency functions described in Figure4-6 are covered here. Some formannexes themselves. Others are dividedinto several annexes. For example, theFire and Rescue function is divided intotwo separate annexes.

The selection and definition of functionsto be covered in annexes varies fromjurisdiction to jurisdiction depending onsuch factors as the size, governmentalorganization, and preparedness needs ofthe community.

1. Direction and Control2. Warning3. Communications4. Public Information5. Evacuation6. Shelter7. Mass CareS. Health and Medical Services9. Law Enforcement

10. Fire11. Search and Rescue12. Radiological Defense13. Engineering Services14. Agricultural Services15. Damage Assessment & Analysis16. Transportation17. Resources Management

Figure 4-10: Example annexes toaccompany the basic plan.

PurposeSituation and AssumptionsOrganization and Assignment of

ResponsibilitiesConcept of OperationsAdministration and LogisticsPlan Development and MaintenanceAuthorities and ReferencesDefinition of Terms

Figure 4-11: The parts of the basic plan.

The format you should follow indeveloping each of these annexes is thesame as the basic plan. Begin with astatement of purpose for the emergencyoperation being described. Then turn tothe situation and assumptions, and otherparts described above for the basic plan.The eight parts of the basic plan and theannexes are listed in Figure 4-11 forreview.

Appendices

An appendix contains details, methods,and technical information that are uniqueto specific hazards identified as beinglikely to pose a threat of disaster in thecommunity.

Appendices should be attached tofunctional annexes and should havesections corresponding to those in theannex for which supplementary hazard-specific information is required.

Standard Operating Procedures andOther Attachments

Procedures and other types ofoperational information necessary tosupport and provide directions to disasterresponse personnel may be attached toany of the plan elements where they are


Unit 4-20

most readily accessible and most likely tobe needed. These attachments mayinclude:

• checklists• charts• maps• standard operating procedures• catalogues of resources• call up lists• contact lists• etc.

The attachments are working documents;names change and procedures arerevised. As a result, the attachments willprobably be the most frequently modifiedpart of your plan. You should design theplan that way, allowing for removal andinsertion of changes and new pages.

Characteristics of a Good Plan

The plan should provide for anorganizational structure and offer adefinite course of action to meetemergencies or disasters. Here areseveral characteristics of a goodemergency operations plan.

The plan must be BASED ON FACTS ORVALID ASSUMPTIONS. If you must makeassumptions, check them out to makesure they are as close as possible to theactual situation. For example, supposethere are 20 pieces of fire apparatus inyour community. However, to create anaccurate plan, you need to learn from thefire chief that approximately 20% of theapparatus is usually in the shop forrepairs or preventive maintenance at anygiven time. Thus a valid assumption inyour plan would be that you could counton an 80% response from the firedepartment.

Your plan must be based on theCOMMUNITY RESOURCESINVENTORY that is discussed in the nextsection. Do not assume you can get helpfrom the private sector unless theseresources are on the list.

The plan must provide the necessaryORGANIZATIONAL STRUCTURE. Itshould clearly define the relationshipbetween the various functions and fix theresponsibility of who is to do what. Wherepossible, people should be assignedfunctions as close to their day-to-dayoperations as possible. Existing workgroups should be kept intact as much aspossible. For example, you would notmake communication operators out ofsanitation workers. The plan should allowfor delegation of authority as much aspossible. The people in command of theEOC will have enough to do in anemergency. Any decisions which can bemade in the field should be made there.

Use SIMPLE LANGUAGE in theemergency preparedness plan so that itwill not be misunderstood. Avoid bigwords and long sentences.

Finally, the various elements of the planmust be COORDINATED and fit together.You don't want one group doing onething and another doing almost theopposite. Most important to coordinateare the various department plans of thejurisdiction with the overall emergencymanagement plan through the annexes.

When you have the plan completed,review each aspect with your localofficials and others who have responsibleparts to play in its implementation. Beprepared to make revisions if necessary.Don't expect agreement from everyoneon every point. You may even have to


Unit 4-21

serve as a negotiator betweendepartments. However, as the emergencyprogram manager, you will have torecommend a final form of the plan toyour superior for approval.

THINGS TO DODevelop an emergency operationsplan for your city or county. If youalready have a plan, review it carefully.Develop a needs assessment as youreview the plan. After you havecompleted the plan, review it with localofficials and department heads. Whenin final form, get the plan approved bythe local government body.

Testing the Plan

A soccer or basketball coach would notthink of going into a game without a planor without the team practicing. The sameis true for your emergency operationsplan. You must be reasonably certain thatthe plan will work. However, until you testit, you really don't know for sure that it will.The most effective way to test the plan,and all the other capabilities of youremergency management program, is bysimulating a real emergency to EXERCISEyour personnel and procedures.

There are four different types of emergencymanagement exercises. Each isprogressively more realistic, more stressful,more complex, and more difficult to conduct.Therefore, jurisdictions should plan onexercising in successive steps, eachbuilding on the experience of the pastexercise. Keep in mind that the four exercisetypes are designed to provide bothindividual training and improve theemergency management system. As aresult, exercises should not be "one-shot"efforts. Rather, exercises must be an

integral part of improving each emergencymanagement program. The four types ofexercises described below can be usedto create a complete exercise program.

The first type of exercise is a preparatorytraining exercise that uses simulationmaterials to set the stage forORIENTATION to plans or procedures. It isvery low-key and is used as a building blockto other, more difficult exercises. Theorientation exercise does not satisfy anyFEMA exercise criteria but is very importantas a part of a complete exercise program.Information on this and all types of exercisesare provided in FEMA's "Exercise DesignCourse" (G120) and in the "Guide toEmergency Management Exercises" (StudentManual 170.2 available from your StateEmergency Management Office). IS-120, "AnOrientation to Community DisasterExercises" is a prerequisite to G120.

The second type of exercise is the TABLETOP exercise. The characteristics of all,tabletops include low. stress, little attention totime, lower level of preparation effort, andonly rough attempts to simulate reality. Thefocus in these exercises is on training andfamiliarization with roles, procedures,responsibilities, and personalities in thejurisdiction's emergency management system.

The TABLE TOP EXERCISE introducesparticipants to messages which simulate arealistic event. It is to these messages thatindividuals respond with decisions. Althoughlow levels of stress are maintained and thereis no rigid timing of messages, the table topexercise serves the purpose of emphasizingthe many problems of coordination amongagencies.

The more advanced exercises areFUNCTIONAL EXERCISES andFULLSCALE EXERCISES. The


Unit 4-22

FUNCTIONAL exercise is an insideexercise, in that it takes place within aclassroom or actual emergencyoperating center. It involves very complexsimulation with varied forms of messagetraffic (written, telephone, radio), andexhaustive attempts to recreate a realisticenvironment through simulation. Trainingcomes from the practice and testing ofpersonnel and procedures under complexconditions and high stress that evokeresponses that approximate a realemergency, even though actual equipmentis not operating.

The functional exercise can bring keyagency personnel into the EOC to runthrough their decisions andresponsibilities. This method tests theorganization of the plan, its taskassignments, and the liaison necessaryamong government officials. Conflicts inauthority or responsibility emerge in afunctional exercise as do gaps in taskassignments in the plan.

Conducting regular and periodicfunctional exercises should be the goal ofevery emergency management program.

The FULL-SCALE EXERCISE combinesa functional exercise with a DRILL inwhich field personnel of one or moreemergency services actually operate.The actual movement of equipment andpersonnel is important for thepreparedness of individual emergencyservice organizations, but a drill does notsuffice to test the emergencymanagement plan. Too often,jurisdictions feel confident that they havetested their plan after running a drill.However, unless the EOC is activatedand full interagency coordination hasbeen exercised, there is no completesystem test. Therefore, the goal of

exercising should be to conduct a full-scale exercise. That includes EOCactivation. Drills alone cannot substitutefor simulation of emergency coordination,the most important task of the emergencyprogram manager.

Drills do serve a valuable purpose insupport of a full-scale exercise. Forexample, before you conduct a majorexercise you should make certain that theplan calls for the alert of all the rightpeople by conducting a NOTIFICATIONDRILL. This consists of pretending that adisaster has occurred and observingwhether the correct people and agenciesfind out about it at the right time. The drillachieves the purpose of making certainthe plan contains the proper informationon roles and responsibilities.

Drills could be conducted forcommunications, emergency medical,hospitals, fire, police security,evacuation, radiological monitoring, andother emergency functions. In a sense,the drill is a test of one of the plan'sannexes. The actions described by theannex are initiated and response ismonitored to see how effective the annexis and if it can be carried out in the timeexpected.

Drills also let you test some of thespecialized facilities you have, such asthe EOC and communications equipment,to verify it is in working order.

One final word of warning: Do not go toadvanced exercises until all participantsand agencies have participated in themore basic exercises and drills. Thesurest way to "fail" the test or the plan isto attempt to launch a full-scale exercisewith insufficient practice.


Unit 4-23

THINGS TO DOConduct a test of all or part of theemergency operations plan. Takenotes as the test is in progress. Notewhat went as expected and whatwent wrong. Hold a review after thetest to discuss the outcome. Modifyyour plan if necessary.

Getting the Word Out

Once you have completed the emergencyoperations plan, let everyone in thecommunity know. It is an excellent time tobegin a full public information push foremergency preparedness. It is also anexcellent time to do a little promotionwithin your own government. Use thecompletion of the plan as an opportunityto renew contact with other agencyofficials, volunteer groups, and thepublic.

Your approach to each of these groupsand the information you present will bedifferent. The intent, however, is thesame: to have a well informed and fullyprepared community.

Those people who play a role in theorganization and emergency operationare the primary audience for large partsof the plan. They probably were involvedin writing their annexes to the plan, sohere you are renewing familiar contacts.The best way to inform them of thecompletion and availability of the plan isto hold training sessions with variousofficials, departmental staff, andindividuals from the private sector whohave definite roles in the plan.

A broad overview of the plan should bepresented to everyone, but each

individual should know the specific dutiesfor which he or she is responsible in anemergency. Make sure you meetpersonally with the key individuals in yourorganizational structure. Do not just sendout a memorandum informing them oftheir responsibilities. Memos are oftenlost or just put aside. Meet with them. Amemorandum can be sent after themeeting to confirm what must be done.

Groups in the private sector who have aninterest or responsibility for emergencyactions are the next you should contactupon completion of the plan.

If groups of people have been involved inthe development of the plan all along,getting the word out will be much easier.For example, if the Red Cross sat downwith you to draft their participation plans,you would have a ready audience for thecompleted plans. Including relevantorganizations into plan writing gives youa built-in constituency and adds to thecredibility of the final plan.

The information you will share with theinterested groups will depend on the typeof groups, their roles in the plan, andtheir stated interest in the plan. Volunteerleaders should get a general overview ofanticipated emergency operations that isprovided by the basic plan. Their primaryconcern, however, will be the annexwhere they have a role to play.

The third group you should inform aboutthe completion of the plan is the generalpublic. They will not be interested in mostof the details of the plan. Their concernsare: "What should we do?"

The public needs to be told that a planexists and its purpose is to help officialsand citizens to properly respond to


Unit 4-24

disasters. The parts of the plan probablyof greatest interest to the public are theannexes on warning, evacuation, andpublic welfare (consisting of food andwater, clothing, shelter, etc.).

Remember, citizens should be given allthe information they need to know inorder to plan their response to disastersand to instill their confidence in the plan.

There are several ways you can in formthe public about the plan. The mostobvious is to use the local news media.Informational spots can be broadcast onradio and television as a public service.Radio announcements are easier toprepare because there are no visuals tomake. Your local newspaper could run aseries of small articles about theemergency operations plan and what thepublic is to do when alerted.

Another way of getting the word out isto speak to local community groups,such as the PTA, Chamber of Commerceor the Board of Realtors. Do not pass upthe opportunity to speak to any group.The more informed people there are, thebetter the plan will work in time ofemergency. If possible, arrange to havesome type of brochure printed which youcan use as a handout. You may even beable to have the brochures printed at nocost by a local printer. As an enticement,you could have "This brochure printedwith the compliments of XYZ Printing,Inc." on the brochure. Many printingcompanies are more than willing to printat no charge if they can get freepromotion as a result.

Here are two suggested ways to getbrochures distributed. One is to usegroups like the boy scouts, girl scouts, oreven adult civic groups to distribute them

door-to-door. An alternative is to see ifthe tax collection agency or a publicutility will allow you to insert the brochurewith tax statement or utility bills.

Take advantage of every opportunity tolet the public know what will be expectedof them in time of emergency. Thecompletion of the plan is one suchopportunity. You can tell them about theplan and its provisions for warning,evacuation routes, and other efforts toassure their safety. You can also take theopportunity to inform about shutting offhome utilities in a disaster, storage offood and water, and other survival hintsfor emergencies.

Figure 4-11 on the next page illustrateshow one community presented its plan forevacuation in the event of a dam breakthat would endanger the area. You willnote that what the public received wasthe brief information that they need in anemergency.

In summary, don't wait until a disasterstrikes before you tell people what to do.Your motto should be the same as thescouts. You want the people to BEPREPARED!

THINGS TO DOWork with the public affairs branch ofyour government to develop a smallinformational brochure about theemergency operations plan for thegeneral public. It should contain shortclear sentences so everyone canunderstand it. It should explain brieflywhat the warning system is, how thepeople will be notified, and what to dowhen the warning sounds.


Unit 4-25

Figure 4-12: There are many different ways to alert the public to your preparedness efforts. Amap of prominent hazards and instructions for preparedness is one way.


Unit 4-26


Answer the following questions to test your knowledge of this part of Unit 4 facts.Read each question carefully, then write in the answer that you think is correct.Answers can be found on page 4-28.

1. What is an emergency operations plan?

2. What are the three concepts which should form the basis for an emergencyoperations plan?

3. What are the basic emergency functions for which your community should beprepared?

4. Of the three basic components of the emergency operations plan, the Basic Plan isto be used by the chief executive of a jurisdiction. What is contained in theANNEXES and APPENDICES of the plan?


Unit 4-27

5. List the eight parts of the Basic Plan that follow the Introduction.

6. Why will the Standard Operating Procedures be the most frequently modified partof the EOP?

7. List five characteristics of a good EOP.


Unit 4-28


1. The plan provides details on actions, responsibilities,and authorities in time of emergency...............................................................4-10

2. Maintain the regular organization of government; Meet crises atthe lowest level of government; involve the private-sector as muchas possible ......................................................................................................4-10

3. Warning and communication; Public Information; Evacuation andrelocation; Emergency welfare; Emergency medical care; Security;Fire and rescue; Radiological defense; Public works/utilities repair;Disaster analysis and assessment; Logistics; Direction and control ...............4-11

4. ANNEXES—address specific functions for use by operationalmanagers in a format that parallels the Basic Plan.

APPENDICES—support annexes and contain technicalinformation, details, and methods for use by disaster responsepersonnel..........................................................................................4-18 and 4-19

5. Statement of purpose; Situation and assumptions; Organizationand responsibilities; Concept of operations; Administration andlogistics; Plan development and maintenance; Authorities andreferences; Definition of terms......................................................... 4-16 thru 4-18

6. The Standard Operating Procedures are working documents;names change and procedures are revised ....................................................4-19

7. Based on facts, based on community resources,provides organization, simple language, coordinates actions.........................4-20



Unit 4-29

Doing a Resource InventoryAs you work on an emergency operationsplan, you will find that to do the job thatthe plan describes requiresRESOURCES. These resources are bothpeople and equipment. Without them thejob of emergency response would beimpossible. For example, it would not bewise to plan for immediate helicopterevacuation of injured people if thenearest helicopter is based over 100miles away. The point is, in order to carryout your plans, you must know what youhave to work with.

Resources are of four types: Thoseavailable from your government; those ofa neighboring jurisdiction; those that canbe obtained from the private sector; andthose maintained by higher levels ofgovernment.

Government resources are calledGOVERNMENT EMERGENCYCAPABILITIES. These are theemergency resources of the variousdepartments and agencies of yourjurisdiction. They are the first line ofresponse and the core resources for youremergency plan.

Your jurisdiction, however, may not haveall the capabilities needed for the fourphases of emergency management.Heavy earthmoving equipment, forexample, would be needed after amudslide. There is probably oneavailable from a private company.Similarly, the jurisdiction may not have abiochemist on staff when water issuspected to be contaminated by a sewerleak. The local college may be thenearest source of such skills. These

resources obtained from the privatesector are called PRIVATE COMMUNITYRESOURCES.

It would not be fiscally responsible for acommunity to purchase some specializedpiece of emergency equipment if one likeit is owned by a neighboring jurisdictionand could reasonably be shared by thetwo counties or cities. It makes sense thatresources be shared as much aspossible. That is the purpose of mutualaid pacts, to negotiate in advance thesharing of resources. These resourcesavailable from another jurisdiction arecalled NEIGHBORING JURISDICTIONRESOURCES.

The emergency resources of thecommunity begin with the local or countygovernment and are supplemented by theprivate sector, neighboring jurisdictions,and HIGHER LEVEL GOVERNMENTRESOURCES.

The federal emergency capabilityconsists of equipment and people. Bothare used in the performance of routinegovernment operations and in disasters.But they can also be called upon toperform emergency duties in a disaster.For example, police continue to providepost-disaster traffic control and security.The public works department becomesresponsible for disaster debrisclearances Resources also include somespecialized facilities and equipmentdesigned initially for use in a nucleardisaster. For example, sirens for a civildefense warning system can be used inall types of emergencies. This is the localimplementation of the concept of dual


Unit 4-30

use. To be most economical and efficient,resources available for nuclearemergencies are used for all types ofdisasters.

In order to make use of emergencyresources, you must know what andwhere they are and how to obtain theiruse. You begin by reviewing with officialsin your jurisdiction the emergencycapability of government. Then, you turnto the private sector to discover what isavailable to supplement the government'semergency capability. In the sectionsbelow, you will learn techniques foridentifying the government emergencycapabilities and the private sectorcommunity resources.

A Resource Inventory

The purpose of the resource inventory isto provide the essential information thatwill enable you to best use resources inan emergency. The essential informationfor each of the three types of resources(government emergency capabilities,private sector and neighboringjurisdiction), will be different. The actualinventories for your government'sresources will be kept by eachdepartment and agency. What you needto know is who controls those resourcesand how to contact that person. Similarly,neighboring jurisdictions will keep theirown resource inventory. You need toknow how to obtain those resources.Finally, the major part of your resourceinventory will be devoted to the privatesector people and equipment that willsupplement government resources in anemergency.

Figure 4-13: Inventorying Your Resources.

Perhaps you already have a communityresource inventory. If you do, get it outand review it as you read this section.Your inventory should be updated asoften as necessary, but at a minimumonce a year. Now is as good a time asany to do it. In looking at it, you may findthat your inventory is not as complete asit should be. Now is the time to beginadding to it. If you do not have a resourceinventory, this section will show you howto develop one.

The procedure you should follow beginswith your government emergencycapabilities. Find out what you alreadyhave in the community. Next, you shouldreview your mutual aid pacts to see whatresources you can call upon fromneighboring jurisdictions. Finally, decidewhat else is needed. Then, begin toapproach groups, companies, orindividuals in the private sector tosupplement your existing resources.


Unit 4-31

Position Phone Address

Mayor Sam Johnson Office 244-2600 Room 100, City HallHome 262-7456 1212 Maple St.

Council Sue Jones Office 235-4500 Council ChamberChairperson Home 544-5789 4578 West St.

Fire Chief Elmer Smyth Office 244-26i6 701 Main St.Home 282-4568 459 6th St.

Police Fritz Branch Office 244-2677 Room B-4, City HallChief Home 544-4619 806 Highland Ave.

Supt. of John Moheimer Office 244-2677 404 Stratmore RoadPublic Works Home 262-7785 1666 Fulton Ave.

School Supt. Ruth Becker Office 855-5656 Room 100, Valley Elem.Home 262-7630 1422 Fulton Ave.

Figure 4-14: Preliminary inventory of government officials.

Although creating a resource inventory istime consuming, it is necessary. Doing itcan help you develop contacts withvolunteer groups (who are a source ofhelp with the resource inventory), yourown government officials, and businessand industry throughout the community. Itcan be a path to visibility in your area anda way to build bridges to groups that willbe important in emergencies.

Government EmergencyCapabilities

Your goal in doing an inventory of localgovernment capabilities is to identify thepeople who have authority to allocateresources in an emergency.. Your intentis not to duplicate each agency'sresource inventory. What you need toknow is whom to contact to get anemergency generator when a home forthe elderly is hit with a power blackout.You need to know that the highway

department has generators. They needto know how many, what wattage, andother technical details.

Begin to identify your governmentemergency capabilities by using orcreating a list of departments andagencies. Your jurisdiction is sure tohave an organization chart or even thegovernment phone book that will providethe names of the head of each division.You now have the beginning of agovernment emergency capabilityinventory.

In order for the government capability listto be of any value, it must contain morethan just a list of names. In emergencysituations, you must know how to get incontact with the people on your inventoryin a hurry. You will also need theirAGENCY ADDRESS, HOME ADDRESSas well as their home and businessTELEPHONE NUMBERS.


Unit 4-32

Since you never know when anemergency may occur, having anofficial's home telephone number andaddress is extremely important. Thehome telephone will allow you to contactthem after working hours if you need to.The home address is important, too,because under certain emergencyconditions, telephone service may beinterrupted, and contact would have to bemade through some type of messenger.

Your preliminary inventory may looksomething like Figure 4-17. All of thisinformation should be available from yourlocal government personnel office.

The next step is to talk to each person onyour list. it is usually wise to set up anappointment with them so you know theywill be available. Don't go empty handed.Your purpose is more than a casualconversation, and you should beprepared to take notes as well as explainin detail what you are doing. In fact, youmay wish to organize some type of formalpresentation, or at least have a list of theimportant points you wish to cover. Thisis especially important if it is your firstmeeting with the official.

As you talk with each official, askquestions. Find out what they do on anormal day-to-day basis. Ask what theirconcept of emergency management is.Ask what they think their job would be inan emergency situation. You may find ituseful to do this while you are doing orreviewing the emergency preparednessplan.

As you interview the official, develop alist of resources available to the officialand through him or her for emergencyoperations. The outline in the Things toDo worksheet can be used as a guide,but there may be other types ofinformation you may want. Let's look atsome things you should find out, andwhy.

First, find out how to get in touch with theindividual after working hours.Remember, emergencies occur at anytime. Next, determine whom the officialreports to. Often, an official may want toknow if you already have talked with hisor her superior just to make sure thesuperior knows what is happening.

Knowing the official's SUBORDINATES isalso important. Earlier you learned thatyour preparedness plan should provide

Figure 4-15: Government equipment may serve a dual purpose in emergencies.


Unit 4-33

for a line of succession. The same holdstrue for local government departments. Ifthe head of the department is not available, you should know WHOM TOCONTACT

Listing the person's DUTIES will give youan understanding of the type of work thedepartment is responsible for and shouldassist you in determining which types ofemergency help may be available fromthis department.

If you are not sure about the usefulnessof the resources, discuss it with theofficials. Often they may have emergencyuses for their equipment in mind. Forexample, garbage trucks may be of use

for cleaning up the debris after a fire orflood. Don't over look other possibleuses, depending upon the specialequipment on the truck. In somejurisdictions, trash trucks may also havetwo-way radios. Such trucks could beused as mobile. communicationsvehicles.

As you can see, it is important to exploreall the possible uses of the resources of aparticular government department beforeyou turn to the private sector or othergovernments for help. Althoughcomprehensive emergency managementis built on a partnership amonggovernments and the private sector, thefirst responsibility you have is for a strongemergency management program in yourjurisdiction.


Unit 4-34

THINGS TO DO

Interview at least three government officials who are in positions which make them likelyofficials you would have to deal with in emergency situations. Use this worksheet as aguide.

Local Government Key Individual Survey

Name: Title:

Business phone: Home phone:

Home address:

Reports to:

Principal duties:

Key SubordinatesName: Name: Title: Title: Telephone: Home Telephone: Home

Work Work

Departmental Manpower:

Departmental Equipment:

Types: Where located:

Uses:

Are there similar resources in the private sector? Where?


Unit 4-35

Your Jurisdiction's SpecializedFacilities, Personnel and Equipment

Specialized facilities, personnel, andequipment are public resources whichmay or may not be in use on a regularbasis but are specifically designated foruse in emergency situations. Specializedresources which should be availablewithin your community are an operationscenter, a warning system, acommunications system, and anoperations staff.

Having a designated EMERGENCYOPERATIONS CENTER (EOC) is anabsolute must. Trying to run emergencyoperations without an EOC would be liketrying to drive a car without a steeringwheel. You must be able to guide thedirection of your emergency operationsand the EOC is where you do it.

The EOC has several functions.

First, it serves as the command center.As such, it must contain the necessarycommunications equipment so that youcan direct the units out in the field.

Second, it serves as an operations centerfor local government officials, youremergency operations staff, and yourselected emergency volunteers. Itprovides a center of operations andinformation for government officials awayfrom the disaster scene which isimportant for the smooth operations ofemergency responders at the scene.Thus, your EOC must be large enough sothat emergency operations can beeffected and decisions made with respectto direction and control.

Third, it must serve as an informationcenter. Provisions must be made so that

incoming information can be receivedfrom units at the emergency site. Often,these are the same communicationschannels as are used to directoperations. The EOC, however, mustalso be able to provide for press andmedia briefing so that the citizens of thecommunity can be kept informed.

The EOC should also provide the staffwith shelter and life support services. TheEOC should have an emergency powergenerator; auxiliary sources of water,heat, and ventilation; and the followingradiological instruments:

High Range Survey Meters CD-V 715CD-V 717CD-V 720

Low Range Survey Meters CD-V 700

Dosimeters CD-V 742

It should also have the basic comfortfacilities to make long occupationbearable. In order to qualify as a fullyequipped EOC by the standards of thefederal government, your EOC must bean all risk facility to be able to survive allhazards.

The ideal place for an EOC is in a localgovernment building which may bealready equipped with the necessarycommunications equipment and provideadequate fallout protection. Don't assumethe COMMUNICATIONS CENTER ofyour local police or fire department is theideal EOC just because it is there andalready in operation. It may provide onlylimited fallout protection.


Unit 4-36

However, all risks must be considered inchoosing a site for an EOC. An EOCshould not be located in a basement in aflood zone. The continuity of governmentdepends upon the survivability of yourEOC.

Even the most sophisticatedcommunications center may not beadequate because there is not enoughspace to keep media briefings separatefrom decision-making meetings. You donot want your decisionmaking meetingsopen to the media. Often bits and piecesof information are picked up by the mediabefore they can be verified, and thepublic is misinformed. Your EOC mustprovide you with the opportunity to keepcertain information confidential, which isdifficult to do in most typicalcommunications centers.

You should also have some type ofCOMMUNITY WARNING SYSTEM. Ofcourse the use of local radio andtelevision stations is one way of informingthe public of an emergency. The

EMERGENCY ALERT SYSTEM (EAS) isa well-established way to instantly getinformation to citizens. You shouldcontact the local media about EAS tomake certain both you and they are fullyprepared to use it.

Not everyone is always listening to theradio. Thus, many communities havefound a need for some type of systemwhich utilizes sirens on buildings as wellas those on mobile emergency vehiclesin your community. Sirens have proven tobe an effective way of alerting the publicto a variety of attack conditions.

COMMUNICATIONS EQUIPMENT isanother specialized resource yourcommunity should have. In youremergency preparedness plan, you mayplan to use the communications facilitiesof the fire department, police department,and whatever other communicationsequipment your government has. Becertain this is adequate. You may need

Figure 4-16: Make sure your EOC has adequate space and facilities.


Unit 4-37

additional communications facilities,dedicated for emergency operations, sothat you have the capability of contactingyour own emergency staff andvolunteers. Among the existingemergency systems are the NationalWarning System (NAWAS), theEmergency Alert System, and local radioamateur clubs that perform valuableservices.

THINGS TO DO

Survey the specialized resources of your community. Use the following worksheet as aguide. Catalog specialized resources and put them in a separate section of the resourceinventory.

Specialized Resource Worksheet

1. Do you have a designated EmergencyOperations Center? Yes No

2. How long does it take to become operational?

3. Does it have backup power and heat? Yes No

4. Does it have adequate space for operationsand press briefings? Yes No

5. Does it have permanent communications equipment? Yes No

6. Does the EOC have an adequate protection factorto assure survival in a nuclear attack? Yes No

7. Do you have a local community warning systemindependent of the local broadcasting media? Yes 'No

8. Are there government employees from otheragencies who will work in the EOC? Yes No

9. Do you have an alternative EOC designated incase the primary EOC is destroyed? Yes No


Unit 4-38

Finally, GOVERNMENT EMPLOYEESwith jobs related to the needs of anemergency are another specializedresource. These people might normallybe employed as radio dispatchers publicrelations officers, maintenancepersonnel, or clerical help

Specialized resources are vital to youremergency management program.Remember them!

Private Community Resources

in the previous section you learned howto review the emergency capabilities ofyour government departments andagencies either as part of developing thepreparedness plan or while updating aresource inventory. Now, you have todecide what other resources arenecessary to carry out your emergencyplan.

Review the plan and the capabilities youhave identified for each department andagency. Are there major gaps in the basicplan that must be filled from the privatesector? Hospital facilities for masscasualties is one item usually left to theprivate sector. Emergency medicalservices, in contrast, are sometimes amixture of public agencies (most often thefire department or an independentservice) and private ambulancecompanies.

Next, review the annexes with thedepartment responsible for carrying outthe annex plan. Are there resourcesassumed that have not been identified?What is missing? For what resourcesmust you turn to an agreement with theprivate sector?

Talking to each of the governmentofficials on your list is a good way to findout if supplementary resources areavailable in the PRIVATE SECTOR. Yourlocal Department of Public Works mayhave a fleet of dump, trucks, but thedirector may also know of several privatecompanies which have similar trucks. Infact, some government departments mayalready contract with private companieson a regular basis for various types ofresources.

The way to begin your inventory ofprivate resources is to get the names of acontact person for the private sectorresource from your governmentcolleagues.

From your government interviews, then,you should have a pretty good start onyour private community resource list. Ifyou did a good job of interviewing localofficials, you should also have a list ofindividuals or companies that haveresource you could utilize in anemergency.

When you have exhausted privateresources suggested by governmentofficials you will have to turn to othersources. The telephone directory or localbusiness directory are two good sourcesto use when compiling your resource list.Once you start, you will be surprised howmay resources you can locate in thetelephone book. Figure 4-17 is a list ofpossible headings under which you couldcatalog local resources. Certainly thereare other categories. It is better to havean extensive list and have to use half of itthan to have resources in yourcommunity which are not on your list.


Unit 4-39

LOCAL RESOURCES

EMERGENCY SERVICES MEDIAFire NewspapersPolice Radio StationsPublic Works Television stationsPublic Utilities News services

MEDICAL INDIVIDUALSHospitals ClergyClinics Local officialsDoctors DoctorsDentists DentistsNursing Homes NursesVeterinarians PilotsMedical associations Amateur radio operators

Building contractorsASSEMBLY AREAS

Parks EQUIPMENTShopping centers Farm tractorsSchools Construction equipmentChurches Excavation equipmentGovernment buildings Chain sawsWarehouses Portable power plantsCommunity centers Oxygen tanks

TRANSPORTATION SERVICE AGENCIESBuses Red CrossTrucks Salvation ArmyVans4 wheel drive vehicles COMMUNITY GROUPSTractor trailers PTATaxicabs Chamber of CommercePower boats Boy ScoutsAirplanes Girl ScoutsSnowmobiles KiwanisSwamp buggies Lions ClubHelicopters Cub Scouts

MooseChurches

SUPPLIES American LegionFood VFWClothing Women’s clubsSand Senior citizens groups

Figure 4-17: List of possible headings under which you could catalog your local resources.


Unit 4-40

When you have identified a resource youwill need in an emergency, always makecontact with a responsible individualbefore you add the resource to yourinventory. Contact can be by telephone,letter, or in person. Just because aparticular private resource wasrecommended by a government official orthe resource is listed in the phone bookdoes not mean that you have permissionto use it in an emergency.

The purpose in making contact is tosecure some type of agreement in writingfor the use of resources from the privatesector. The agreement could be only afew lines, or several paragraphs. Itshould be signed by the individual whoowns or is responsible for the resource.The agreement may also specify that theowner will supply trained operators forthe resource and the amount ofcompensation required. Suchagreements may be in letter or memoform, and should be kept on file in youroffice. The name of someone who hasthe authority to act in the owner's behalf if

he or she is not available could also beincluded in the agreement. In developingyour permanent inventory, do not addnames or resources without personalcontact to confirm resource availability.

An example of the kinds of data thatcould be in a resource inventory is shownbelow.

Finally, do not overlook any possibleresource. For example, after a recentrecord snowfall, a Washington, D.C.suburb found it was impossible for fireand rescue equipment to get out, evenwith chains on the tires. If theysucceeded, they could only stay on themain roads, as most side streets androads were not plowed for several days,some for almost a week. From thecommunity resource list, a few localfarmers with tractors and wheel chainswere assigned to each fire station andequipped with a portable radio. Theysuccessfully pulled fire apparatus throughunplowed roads.

WILSON COUNTY RESOURCE INVENTORY

RESOURCE: Heavy Equipment (Dump Trucks; Graders)NUMBER: 18 (12 dump trucks; 6 graders)SKILLS/CAPABILITIES: Excavation; debris removalTRAINING/EXPERIENCE: Used extensively in Hurricane BettyLOCATION: TowsonADDITIONAL RESOURCES REQUIRED: Drivers; skilled operatorsPRIMARY CONTACT: Albert King (K & R Const.)

ADDRESS: 4100 Janeway Rd., Bedford, MD 30511PHONE: 305-414-4145HOME ADDRESS: 833 West Wooddale Ave., Towson, MD 30521PHONE: 305-744-4145

ALTERNATE CONTACT: Richard HenneseyPHONE: 305-221-1416HOME PHONE: 305-221-2881

AUTHORITY: Letter of Understanding: 6/4/80COST/COMPENSATION: $35/hr trucks; $41/hr gradersDATE CONFIRMED: 1/4/81

Figure 4-18: Resource Inventory.


Unit 4-41

Getting Help from the Community

It should be apparent to you that it wouldbe quite a job if you had to develop theresource list by yourself. Just maintaininga list with current information is quite atask. Earlier, you learned that one way toget help in developing the resource listwas to ask people you were interviewingwhere similar resources were available.That technique is good when you aregetting started. But it still relies on you todo most of the work.

Often an emergency management officeoperates on a limited budget, and paidemployees are not available to help you.You should, however, investigate thepossibility of using paid personnel fromother departments first. In somejurisdictions, certain departments haveslack seasons, and personnel could beassigned to help you on a part-timebasis.

Most successful emergency programmanagers get VOLUNTEER HELP fromthe community. Most communities havecitizens groups. Take advantage of theseresources. A good place to begin is toask to speak before citizens groups topresent your program. See if you can getthem to conduct interviews for you. At aminimum, get a personal informationsheet from each member so that you cantell if they have any special talents,abilities, or equipment which may be ofuse to you.

Perhaps the best source of volunteerhelp can be obtained from senior citizengroups and young adult groups. Membersof other groups hold full time jobs duringthe day, and are not available duringworking hours. Senior citizens are usuallymore than willing to help on a volunteer

basis. Many of them are extremelydedicated and hard workers. Best of all,most of them are available during normalworking hours. Senior citizens may beone of the most valuable communityresources. They can be used to assist intaking surveys, conducting interviews,and routine office operations. Youngadult groups, such as explorer scouts orchurch groups can also be used asvolunteers.

THINGS TO DODevelop the private communityresource inventory and catalog theresources in a systematic way. If youalready have a resource inventory,determine when it was last updated. Ifthe resource inventory is more than ayear old, verify the information on thelist and see if you can expand it.

Do not overlook the local news media inhelping locate volunteers. Localnewspapers, for example, may be willingto print a resource questionnaire as apublic service, so that citizens cancomplete the questionnaire and mail itback.

Updating the Resource Inventory

A resource inventory is worthless if it isnot up-to-date. A large book withincorrect data will give you a false feelingof confidence—and others misplacedconfidence—in your emergency program.When an emergency occurs and you arecalling disconnected telephone numbersand promising resources you cannotdeliver, lives may be lost. An out-of dateinventory is its own hazard.

The fastest way to update a resourceinventory is to send a standard form letter


Unit 4-42

to everyone on the inventory. Reproducethe information you have on the inventoryand ask them to confirm the facts andcontinued availability of the resource.When the letter is returned, you canchange information on the inventory andmake note of the last date ofconfirmation. Anyone using the inventorywill be able to identify the accuracy andcurrency of the information.

WILSON COUNTY EMERGENCYCONTACT LIST

HEAVY EQUIPMENTHighway Dept./Jack Bryan

305-369-2948Ace Trucking/Harry Lee

212-378-2980Bell Construction/Mr. Dever

305-342-3631U of Maryland/David Deidorf

305-567-9090Franklin Co./J.F. Franklin

212-479-2947

ROAD REPAIRFranklin Co./J.F. Franklin

212-479-2947Asphalt Contr./Mr. Lester

305-274-3652Tonnage Stone/Lee Hanks

305-386-3614

TEMPORARY SHELTERRed Cross/Joyce Sever

305-283-3846Mennonite/L. Kayser

305-374-2965School Dist./Sup. Williams

305-478-0754First Baptist/Rev. Smythe

305-462-5670

Developing a Resource Index

To bring meaning to all the variedresources you have collected in yourinventory, you must sort them into auseful INDEX. The use of a computer isextremely helpful for the quick andefficient retrieval of this valuableinformation.

Developing the index is not difficult. Youmight select several main topics and gothrough the catalog noting whatresources would be useful in, forexample, evacuation, or temporaryshelter, or road clearance. Then, you cannote what pages of the inventory haveresources for each topic. Or you mightwant to extract a little of the information inthe inventory to make a quick referenceindex containing names and phonenumbers of the resources in each topic.Figure 4-18 illustrates this type of index.

Computers for Resource Management

The advent of inexpensive computers hasmade the job of resource managementmuch more efficient for emergencymanagers. The computer can store vastamounts of information, quickly retrieve it,and display it in ways that help manageresources. Commercially availablesoftware has been developed specificallyfor emergency resource management.These programs include the entry ofresources, their sorted retrieval, themonitoring of resource deploymentthrough automatic timing and dating upondispatch, and even the display oncomputerized maps of the location ofresources. The computer can alsogenerate an index, make custom mailinglabels and letters, and aid your task inmany other ways. As well, many of the

Figure 4-19: Resource Inventory sorted bytype into a telephone contact list can beeasily prepared by a computer program.


Unit 4-43

popular database programs could beadapted to perform some of the key tasksof resource management.

Contact your state emergencymanagement office for recommendationson computer software that will aid yourresource management operations.

Neighboring Jurisdictions'Resources—A Comparison

After you have developed the privateresources inventory to supplementgovernment emergency resources, it istime to see if you did a good job. Oneway is to look at the list and say toyourself "What a great job." You couldshow it to a local official or one of yourvolunteers and get the same response.

One better method of evaluating yourmanagement resource inventory is tolook at your neighbor. Arrange to meetwith the emergency program manager ina neighboring jurisdiction. At this point,don't worry whether you have a mutualaid pact or not. You do not need a mutualaid agreement just to meet with yourcounterpart next door. Sit down and talkwith him or her. Explain what you aredoing. Ask to see their communityresource inventory. Compare them. Is it

more extensive than yours? What is ontheir list that you know you have in yourjurisdiction but do not have on yourresource inventory? By comparingresource inventories, you should be ableto tell if you missed anything. If you have,make a note of it and see that you do theproper follow-up research; that is, get thename, address, and phone number of theperson responsible for the resource andget it added to your list.

Also make a note of the resourcesavailable in the neighboring jurisdictionwhich you do not have in yours. It couldbe an airport, National Guard unit, orperhaps a major medical center.

View your meeting with your neighboringemergency program manager as alearning experience. You can both learnby comparing lists. Emergency programmanagers are often left to learn their jobwith very little outside help. Throughmeetings with your peers, you can learnfrom each other.

Figure 4-20: Compare resources with your neighbor.


Unit 4-44

THINGS TO DOMeet with the emergency program manager in a neighboring jurisdiction. Compareresource lists. Discuss how your lists can be improved. Find out if there are resourcesavailable from your neighbor which cannot be found in your local community. Try todevelop three lists in your meeting.A. A list of the resources your neighbor has that exist in your community but failed to

be put on your resource inventory.B. A list of the resources available from your neighbor which are not available in your

local community.C. A list of the resources your neighbor does not have that will be drawn from your

community. This will allow you to be ready to respond when you hear of anemergency in a neighboring community.


Unit 4-45


SELF TEST REVIEW

Answer the following questions to test your knowledge of this part of Unit 4 facts. Readeach question carefully, then write in the answer that you think is correct. Answers can befound on page 4-47.

1. List four sources of emergency resources and capabilities.

2. What is the purpose of a resource inventory and how often should it be updated?

3. What basic information about government officials should your governmentemergency capabilities inventory contain?

4. What are four specialized resources that should be available within yourcommunity?

5. What are the four major functions of an Emergency Operations Center?


Unit 4-46

6. Why should you personally make contact with the person responsible for a privateresource before you add the item to your private community resource inventory?

7. List five of the 17 types of information you should have about private resources inyour community.


Unit 4-47

CORRECT ANSWERS TO SELF TEST REVIEW Pages

1. Own government resources, neighboring governmentresources, private sector resources, and the next higherlevel of government's resources.........................................................................4-29

2. To provide essential information that will enable you tobest use resources in an emergency. As often as necessary,but at least annually ...........................................................................................4-30

3. Name, position, home and office phone, and address.......................................4-32

4. Emergency Operations Center, warning system,communications system, operations staff........................................... 4-35 thru 4-38

5. Command center, information center, operations center,and shelter .........................................................................................................4-35

6. To secure an agreement in writing for the use of the resourceduring an emergency .........................................................................................4-40

7. Type of resources, number of resources, skills or capabilities,training and experience, location, additional resources required,primary contact, address, phone, home address, home phone,alternate contact, phone, home phone, authority, cost orcompensation, and date confirmed ....................................................................4-40



Unit 5-1

RESPONSE

UNIT 5


Unit 5-2

Stages of ResponseIn the previous unit on operationsplanning, you learned how to plan for anemergency. The true test of the plan ishow the community actually responds intime of emergency. in this unit, you willlearn the basic stages of response thatyou go through in response to anemergency. You will also learn the basicelements in getting the EOC operationaland how to process the information whichcomes in and goes out. Finally, you willlearn how to do a damage assessment todetermine whether you should apply forfederal and state aid.

There are five basic stages of responseto an emergency or disaster. The stagesare: NOTIFICATION/WARNING,IMMEDIATE PUBLIC SAFETY,PROPERTY SECURITY, PUBLICWELFARE, and RESTORATION. Thelength of each stage depends upon theemergency situation. For example, thenotification/warning stage for a hurricanemay be several hours, whereas the

notification stage for an explosion may bea matter of minutes, perhaps onlyseconds. Each stage depends on effortsin earlier stages. The extent to whichevacuation assures immediate publicsafety greatly influences your - later tasksin providing public welfare.

Notification/Warning

Notification/warning is the first stage.How long it lasts depends upon the typeof emergency or disaster. In this stage,two specific groups must be notified:

• The general public; and,• Departments, individuals, or

agencies who must respond to theemergency.

In most emergency situations, thegeneral public can be informed throughradio and television; however, those inthe immediate danger area should beinformed by a more direct means such asloudspeakers or sirens.

Those departments, individuals, oragencies which must be alerted shouldbe informed according to the emergencypreparedness plan. The alert could bedone by two-way radio, telephone,messenger, or local television and radiobulletins. The people who are expectedto respond must be given enoughinformation so that they know what to doFor ex ample, all off-duty or volunteerfiremen may be instructed to report totheir respective fire houses.Figure 5-1: The response phase of

emergency management begins with thenotification warning readiness stage.


Unit 5-3

Immediate Public Safety

Immediate public safety deals primarilywith providing emergency medicalservices, search and rescue, andevacuation from the disaster area. Thepublic safety stage is people oriented.The primary concern is for safety of thepeople and treatment of those who maybe injured.

Property Security

Property security is property-oriented.This stage deals primarily with theprotection of property in the community.The actions in this stage are carried outprimarily by local police and firedepartments. The police see thatproperty is secure and looting orvandalism do not occur. The firedepartment aids in prevention of furtherdamage to surrounding property. Thelocal department of public works mayalso play an important part by providingmanpower and equipment to board upwindows, remove debris, or provide streetbarricades.

Public Welfare

Public welfare consists of two mainoperations: caring for the people after theemergency and assessing damage. Thisstage is where you would most likelywork closely with service agencies, suchas the Red Cross and Salvation Army.During the public welfare stage you mustbe concerned about mass care forinjured, shelter for the homeless, foodand clothing for those in need. Duringthis stage you must also be prepared toassess the damage and prepare the

necessary reports to obtain state orfederal aid.

Figure 5-2: The last stage of response isRESTORATION, where basic life returns tonormal.

Restoration

Restoration involves actions that repairthe necessities of life. This meansrestoring utility service, radiologicaldecontamination, and the removal ofdebris from the disaster scene.Businesses not severely damaged in thedisaster will reopen. During this stage,


Unit 5-4

the first outside assistance provided by acounty, state, or federal government isused. Nothing is as good as new duringrestoration, but people begin to see thatlife can return to normal at a later date.

Overview

These five stages are all part of theresponse effort. The degree to whicheach stage must be implementeddepends on the type of emergency. Forexample, a major fire in an abandonedwarehouse may never call for theimplementation of a public welfare orrestoration stage. However, a major firein a high rise hotel or apartment complexwith many injuries would require differentaction.

Do not get the idea that each of the fivestages are distinct and occurindependently of each other. They areinterrelated and may occursimultaneously, depending upon thesituation.

In the PREPAREDNESS unit, youlearned that certain disasters oremergencies are more likely to occur inyour community than others. You alsolearned that certain resources from yourcommunity resource list may be of use incertain emergencies but not in others. Toshow you how preparedness planning islinked to response, the worksheet on thefollowing page will help you to practiceidentifying the resources needed for anemergency.

After you have completed the worksheet,check it to make sure you have notomitted an important resource. Completea worksheet for all high priorityemergencies which may occur in thecommunity.


Unit 5-5

THINGS TO DO

Complete a copy of this worksheet for one of the high priority hazards in your community. Theworksheet will help you begin to develop an EMERGENCY CONTACT LIST keyed to the fivestages of response.

First, select an emergency and note it in the space provided. Then, list the kinds of resources youmay need to call on in each of the stages. Finally, turn to your resource inventory and identify whoor what agency will provide those resources.

If you do not have an up-to-date resource inventory, put down the names of people or agencieswhere you think you might be able to obtain the resources. In the future, you will have to checkwith them and work out an agreement for the emergency use of the resources.

Completing a chart for each priority hazard will give you a good idea where you need to focus onobtaining resources in an emergency.

Emergency Resource Contact List for (Type of emergency)

Stage Of Readiness Source Telephone

Notification/Warning Resources

Immediate Public Safety Resources

Property Security Resources

Public Welfare Resources

Restoration Resources


Unit 5-6


SELF TEST REVIEW


1. List the five basic stages of response to an emergency or disaster and identify thepurpose of each stage.


Unit 5-7


1. Notification/Warning—To alert the generalpublic and persons designated to respond........................................................5-2

Immediate Public Safety—To provide for the safety ofpeople and aid the injured .................................................................................5-3

Property Security—To provide protection for publicand private property ..........................................................................................5-3

Public Welfare—To provide care for people injuredor dislocated and assess damage .....................................................................5-3

Restoration—To bring the necessities of life backto normal............................................................................................................5-4

For any part of the question that you answered incorrectly, review the pages listed abovenext to the answer to find out why your answer was incorrect.


Unit 5-8

Using The Emergency OperationsCenter

The emergency operations center(EOC) is where you control operationsin case of a disaster. As such, you mustbe very careful in planning for itsoperation as well as making sure thecenter functions smoothly and efficientlyonce in operation.

Earlier you learned the importance ofhaving a well-equipped EOC capable ofproviding for continued operationsthroughout major disasters andemergencies. The EOC is brought intooperation during the response phase ofemergency management. How it ismade operational and how the responsephase is controlled will determine howsuccessful you will be in implementingthe preparedness plan and the type ofresults you will achieve.

Your first task in any emergency is toquickly survey the situation to determineif it is of such size or severity that theemergency operations center should bemade operational. A federally fundedEOC has a permanent staff for day-to-day operations. In other cases, unlessthe EOC is in a shared position with anexisting government agency, such as thecommunications center of the firedepartment, it may not be staffed on aregular basis. Staffing the EOC maymean as little as moving people out oftheir offices and down the hall to theoperations center. Or it may be asdifficult as bringing in people from allover town. When activating your EOC,you will want to gauge your staffing levelby the scale

Figure 5-3: The EOC can be staffed forwidely varying levels of emergencies.


Unit 5-9

of the emergency. There are fourclassifications which can be used to helpdetermine the EOC operational status.

MINOR EMERGENCIES. Minoremergencies are those which arehandled on a regular day-to-day basis bylocal police and fire departments. Undercertain conditions, such as a snow storm,other departments such as public worksmay also be involved. The EOC is usuallynot activated beyond routine staff levelsfor minor emergencies.

LIMITED EMERGENCIES. A limitedemergency requires a limited staff for theemergency operations center. Only thosefunctions of the EOC which arenecessary to cope with the limitedemergency are operational. Thiscondition also can be defined as partialmobilization.

Limited emergency situations fall into twomajor categories. The first is an advancereadiness for what may become a fullemergency at a later time. For example,during a hurricane or tornado watch orwarning, your plan may call for theactivation of a limited staff at the EOC tomonitor conditions.

The second category is when a minoremergency goes beyond the conditionswhich can be handled by the day-to-dayoperations of the local government. Forexample, suppose a small fire suddenlybecomes a major fire in an apartmentcomplex. Your plan may call for theactivation of the EOC on a limited basisto help with mass care, shelter, and theprotection of property.

POTENTIAL DISASTER. A potentialdisaster is one step beyond a limitedemergency. Under these conditions, the

limited staff should be supplemented tomore closely monitor the situation. Duringthis stage, most of the communicationlinks of the EOC are tested and madeoperational. For example, when ahurricane is several hundred milesoffshore and the direction uncertain, theEOC may be in the limited emergencystage. If actual warning is given that itmay strike your area, the potentialdisaster stage is reached.

FULL EMERGENCY. A full emergencyrequires total mobilization of the entirestaff. Go back to the hurricane exampleagain. By the time the winds arebeginning to be felt in your community,the EOC should be on full emergencystatus with all staff there.

Making the EOC Operational

You should develop a sequence of stepsto follow in order to make your EOC fullyoperational. Of course, they will varydepending upon the type of emergencysituation. Here are some of the items toconsider in making your list.

1. Alert the EOC personnel. Thealerting process should be clearly statedin your emergency plan as a standardoperating procedure (SOP). it may be achain of calls where one person callsanother on the alert roster. If one personcannot be reached, alternate nameswould be provided to make sure that theEOC is fully staffed. Your alert roster foryour EOC should be updatedsemiannually. If you live in a largejurisdiction, perhaps some type ofelectronic paging device can be used toalert the proper personnel.


Unit 5-10

2. Activate the communicationsequipment and support facilities.Unless your EOC is in operation on aday-to-day basis, your communicationsequipment will have to be activated andtested.; Activating the support facilitiesmay mean anything from starting anemergency power generator to pluggingin the coffee pot.

3. Initiate the message flowsystem. The message flow system issimply a method of recording messagesas they arrive so that they aredocumented and action can be taken.Usually incoming messages are allrouted through a single person, probablyan operations officer, who then assignsthe responsibility to act on the messageto someone within the EOC.

4. Ready the appropriate logs,maps, and status charts for theoperations board. It is vital that youmaintain a log of events in your EOC.Also, you definitely need maps of yourlocal community. As you learned earlierin another unit, you must be prepared.Don't wait until an emergency occurs andthen start to scurry around to find a mapto aid you in the response effort.

5. Prepare a shift schedule. If theEOC is to be in operation for any lengthof time, make sure you schedule thepersonnel in the EOC so that they arenot on duty continuously. Schedule timeon and off duty as well as relief breaks.Operations often get very intense, andyou do not want fatigue to set in amongkey personnel on your staff.

Figure 5-4: Sample shift schedule for anoperations office and subordinate. Notebreaks are staggered.

6. Announce briefing schedules.You will learn more about keeping thepublic and your staff informed later in thisunit. However, it is important to set up abriefing schedule as soon as the EOC isput into operation. Staff should be briefedwhen shifts change and at other times ofmajor decisions or events. The localnews media also need a briefingschedule so that they know when toexpect a report from the center. Abriefing schedule also will help keep themedia from interfering with the operationsof the EOC.

7. Provide the necessities. If youknow the EOC will be in operation forsome time, make sure the center has theappropriate food, clothing, andhousekeeping supplies.

Figure 5-5: The staff will require all basicnecessities during an emergencyoperation .


Unit 5-11

Controlling Access to the EOC

In order to carry out an effectiveresponse to an emergency or disaster,you must be able to run the EOC withminimum interference from those who arenot part of the emergency managementeffort. The best way to do this is to havecontrolled access to the EOC. As soon asthe EOC goes into emergency status,some type of check-in procedure shouldbe established. The EOC should have areceptionist or guard. Each member ofthe staff of the EOC should have earlierbeen provided with some type ofidentification so that the receptionist hasno difficulty in determining if the person isto be admitted or not. You may wish tohave a different set of credentials forthose who have direct access at any timeand those who have only limited access.

You may also wish to set up some type ofsign-in procedure, so you can tell at any

time who is in the EOC. Figure 5-6suggests one format for a sign-in sheet.

As you learned earlier, it is best to havethe members of the press or news mediaout of the way of the staff so that they donot interfere with operations. Ideally, aseparate room for the media should beprovided. If you have no separate facilityfor the media, you may wish to designatea restricted area within the EOC in whichthey must stay. Some type ofidentification badge should be issued sothat the members of the media can beidentified when near the EOC.

It is wise to meet with the local newspeople when setting up your operationalplan for the EOC and decide just who hasaccess to the EOC and press briefings. Ifa briefing area is available in anotherlocation outside your EOC, you shoulduse it. If you have to use the EOC and itis small, with limited briefing space, you

Figure 5-6: Typical sign-in sheet for an EOC. By looking at the sheet, you can tell at a glancewho is in the EOC.


Unit 5-12

may wish to limit the number of reporters.In such cases, you may explain theproblem to the news people and ex plainthat only x-number will be al lowed intobriefings, and they should decide uponhow, they will, be represented. Alwayskeep in mind that the news media are avital link in keeping the public informed,and you should do your best to keepthem informed as to what is happening.

THINGS TO DOWrite a standard operating procedure tobring your EOC up to emergencyconditions. You may wish to identifyspecific people to be notified, and createa set of credentials which will allow themaccess to the EOC. If you already havean SOP, compare it with the suggestionsoffered above and make modifications ifneeded.


Unit 5-13


SELF TEST REVIEW

Answer the following questions to test your knowledge of Unit 5 facts, Read each questioncarefully, then write in the answer that you think is correct. Answers can be found onpage 5-14.

1. List the four levels of emergencies during which the EOC may be staffed to varyingdegrees.

2. List seven activities you should consider when making a procedure for activating yourEOC.

3. Keeping people informed of emergency conditions while running the emergencyoperations in the EOC requires a careful balance between controlling information andfree access for the media and the public. What procedures and facilities are useful forinforming those necessary without disrupting operations?


Unit 5-14

CORRECT ANSWERS TO SELF TEST REVIEW ................................ .. Review Pages

1. Minor EmergencyLimited EmergencyPotential DisasterFull Emergency...................................................................................................5-9

2. Alert the EOC personnel.Activate the communications equipment and support facilitiesInitiate the message flow systemReady the appropriate logs, maps, and status chartsPrepare a shift scheduleProvide the necessitiesAnnounce briefing schedules...............................................................5-9 and 5-10

3. To balance the public's right to know with the requirementsand duties of emergency operations, you should have adesignated public information officer and a room or locationfor regular briefings for the media. If media are allowed in theEOC, they should be properly identified ............................................5-11 and 5-12

For any part of the question that you answered incorrectly, review the pages listed abovenext to the answer to find out why your answer was incorrect.


Unit 5-15

Information in the EOCINFORMATION PROCESSING refers tothe method by which information goesinto and out of the EOC as well as how itis passed along inside the EOC when it isoperational. Information processing isone of the keys to the success of anyresponse effort. How well you perform willdepend upon how well you can respondto the information you receive.

Once the staff arrives at the EOC, thereshould be no question as to what theyshould do. Each staff member shouldhave a personal copy of the EOCstandard operating procedures. EOCpersonnel should be briefed on thesituation as soon as possible. This canbe done through the use of a quicklyprepared handout which is given to themas they sign in or through a generalbriefing. Briefings should be held on a

regular basis to make sure everyone inthe EOC is kept abreast of the changesin the situation.

As you learned earlier in this unit, allincoming messages should be writtendown and then funneled through anoperations officer to those in the EOCwho are responsible to take action.Figure 5-7 shows a flow chart whichcould be used for message flow in theEOC. Note that the operations officershould also be aware of the actionstaken. You should use some type ofpreprinted form for incoming andoutgoing messages. A typical form isshown in Figure 5-8. Written informationis important for it documents the actionstaken during the response phase. Youmay have to refer to this documentationlater for verification of events.

Figure 5-7: Message Routing Flow Chart with action on left , records on right.


Unit 5-16

The use of a standard form will makecertain that the information is completeand readily available. The form should bean easily recognizable document andcontain space for the members of thestaff to take notes. Nothing is morefrustrating to the staff of an EOC than tohave tiny slips of various sizes and nospecific format passed around during anemergency and have to act as a result ofsuch often confusing information.

As an emergency program manager, it isyour job to see that the EOC functionssmoothly. Maps, charts, and achalkboard should have been set up tokeep the staff informed of what ishappening. An update chart or statusboard at the entrance to the EOC is agood idea. It informs newly arriving staffof the situation as well as providing acentral place for the staff to briefthemselves.

Computers as EOC tools

No tool of emergency operations sincethe advent of radio communications hashad such an impact as the computer. Thestorage of huge quantities of information,the rapid retrieval of information and thedisplay capabilities of the computercombine to greatly alter the way anEmergency Operating Center functions.All of the tasks discussed above areimproved with an emergencymanagement computer system.

Let's take an example of the EOC thatoperates with a computer networkCommunications operators directly. entermessages into the computer, taggingthem for action by specific agencies orindividuals. The action tag is a blinkingred marker that can be turned off onlywhen action is taken. A glance at a largeprojection screen showing the EOC Event

Figure 5-8: Sample message recording sheet for incoming and outgoing calls.


Unit 5-17

Log makes it clear to everyone whatactions are still outstanding and whatunmet needs exist.

Some people on the EOC informationnetwork are managing resources whileothers are tracking the status of. shelters.When a message comes in asking forpumps to support the responseoperations, the resource manager cantype the word pump and have a list of allpumps that are available displayed inseconds. In some systems, this display ofpumps can be shown on computer-generated maps with markers showingthe location of all pumps. When a pumpis deployed, its unavailability is notedinstantly on the screen.

Similarly, questions about shelter statusare quickly answered. The computerallows the EOC operator to display allopen shelters. Each time more occupants

arrive, the available shelter spaces areeasily reduced. The jurisdiction-wide listof shelters and their occupancy rates areeasily shown by the computer.

Computer-aided EOC operations areacapability of the present. Commerciallyavailable emergency information softwareor database management programs thatyou develop yourself are changing theway EOCs function. Your stateemergency management office should beable to recommend approaches toimprove EOC information management.

THINGS TO DOCheck to make sure you have up-to-datemaps for the community. Often the mapsin an EOC are out-of-date because a newroad has been put in or a subdivisionstarted. Check your maps with the localfire or police department. Theirs areusually current with the state of thecommunity.

Figure 5-9: Information management in an EOC is greatly improved with computers.


Unit 5-18

Informing the PublicThe public must be kept informed duringan emergency or the response of citizensmay be unpredictable.

There are two principal methods, ofinforming the public. The first is toprovide some type of personal contact atthe site of the emergency or disaster.Personal contact could be a door-to-doorsearch by members of the police or firedepartment or the use of loudspeakers.This type of contact may be necessary ifan area must be evacuated. For example,if a railroad tankcar containing hazardousmaterials overturns, it may be necessaryto evacuate the area surrounding thederailment. In such cases you cannot relyon the news media, especially since itmust be done quickly.

The local news media is your secondmethod of informing the public. You willnot want to keep any major emergency ordisaster a secret, so use the media toyour advantage. During an emergency,the news people crave information. Asthe emergency program manager, eitheryou, your information officer, or your chiefexecutive will have to face them. If youignore them, they will gather theinformation from private sources, andreport it often as fact. Keep the localnews media informed.

The information the news media needs iswho, what, when, where, why, and whatnext. Prepared press releases are goodways to cover these essential facts. Thereporters will probably want briefings withofficials of the government. Thisapproach can be very useful in gettingattention, but you must insure the officialsare well informed.

Figure 5-10: An outline of facts you should present in a news release for an emergencywhich has just occurred.


Unit 5-19

The necessary facts to present in aninitial news release are illustrated inFigure 5-10. You will see that they arethe facts. Nothing fancy. If you do nothave details, do not be tempted torespond to questions that require details.But, be sure the reporters know that youare telling them every thing you know--and that you will keep them posted. Makesure they know when and where the nextupdate will be given. That way, they arenot constantly pressuring members of theEOC staff for additional information.

Don't bother to package human intereststories; the reporters will find their own.Also, don't expect only to communicatewith the reporters through. writtenbulletins. A news release contains onlythe essential information That is notenough for a good journalist. Be ready tomeet the reporters at unscheduledmeetings.

When you, your superior, or yourinformation officer go before thereporters, be as factual as possible. Donot speculate on what could happen orwhat is going to happen. They will do all

the speculating for you. Present themwith the basic facts, and answer theirquestions to the best of your ability. If youdo not know the answer to a particularquestion, be honest. Tell them you don'tknow at this time, but will let them knowas soon as the information is available orverified. Do not give out any informationthat has not been confirmed.

Remember, work with the news peoplethroughout the year, not only duringemergencies. You will need assistance ininforming the public about yourpreparedness plan. The more you workwith them on a regular basis, the betterunderstanding of their operation anddeadlines you will have. A good workingrelationship may help with usefulexchanges of information during anemergency.

Also, the more respect they have for youfrom day-to-day operations, the less theywill doubt your credibility during anemergency.

Figure 5-11: The media are a vital part of your contact with the public.


Unit 5-20

Finally, always remember that the newsmedia have a job to do. There areconflicts and tensions built into yourrelationship with the news people, butthey are professionals and are part ofyour emergency managementpartnership.

Rumor Control

Rumors are sometimes as dangerous asthe emergency itself. The control ofrumors is essential if the public is toremain calm. As an emergency programmanager, there are several things youcan do to control rumors. First, rumorsmust be controlled quickly. The quickestway to control them is to get the truefacts, and then get the word out. As soonas you are aware of a rumor, eitherpublicly verify it or release to the newsmedia the facts which dispel the rumor.The local news media will be of greathelp in dispelling rumors. That's why it isso important to have a good workingrelationship with them. They may holdcertain information about rumors until it isverified before releasing it to the public.

THINGS TO DOWrite a news release or emergencybulletin for a local newspaper, radiostation, or television station. Take thebulletin to the station or paper and talkto them about the information itcontains. Work with them to design aformat which is acceptable for them towork with.

Make a list of the news media in yourarea. Get a list of the reporters whowould be assigned to coveremergency situations or disasters inyour area. Arrange a get-acquaintedmeeting with them.

A useful technique is the establishment ofa rumor control center. The public can begiven a number to call for confirmation orrefutation of information. It may even beuseful to employ well-known communityleaders to aid in rumor control. Certainindividuals may appeal to a particularracial or ethnic group in the community. Itmay be necessary for such leaders to goon radio or television to inform theirconstituents of the facts involved.

Figure 5-12: Controlling rumors andmisinformation requires the emergencyprogram manager to limit the use ofunverified information by providing thefacts.


Unit 5-21

Improving Public EmergencyResponse Through Public Affairs

Responding to the media and the generalpublic during and after an emergency is,of course, only part of the public affairsresponsibilities for the emergencymanager.

With a mission of helping to protect thecitizens and the property of a community,the emergency manager who also fulfillspublic information responsibilities needsto become involved in pre-disaster publicsafety education. Awareness campaigns,sponsored by community groups, localgovernment officials, and area businessand industry, are perhaps the best way tospread the word on protective actionsthat citizens can take beforehand to helpsave their lives and their property if andwhen that disaster strikes.

Awareness campaigns can address thosehazards that are of priority concern inyour area, and they are a way ofproviding a public education vehicle forcommunities, a means of teaching andchanging the behavior patterns ofcitizens in preparing for, responding toand recovering from any disaster oremergency that could strike thecommunity.

Kits, handbooks, and other materials areavailable on nearly any emergencysubject to implement a campaign, fromhurricanes to tornadoes, from earthquakepreparedness to nuclear poweremergencies. For instance, the FederalEmergency Management Agency hashandbooks and materials coveringhurricanes, tornadoes, and winter stormsand earthquake preparedness. Theemergency manager can obtain these inorder to interest community groups and

others in conducting a campaign. He orshe could chair a committee, or convincesomeone—like an official from themayor's office, a newspaper publisher, ora TV station manager -to take the lead.Involving the community leaders not onlymakes the job easier, but expandsresources for getting the job done.

In addition to helping the citizens of thecommunity, a well-planned, developed,executed and delivered public awarenesscampaign has other spin-off advantages.It expands the emergency manager'sworking relationship with the communityand helps develop stronger alliancesbetween the manager and the localmedia. It will also result in peopleknowing more about the emergencymanagement organization and theservices it has to offer. In addition,necessary emergency public informationwill be disseminated throughout thecommunity, ready to use should adisaster strike.

Public awareness kits include informationon how to conduct a campaign.Additionally, the FEMA handbooksprovide you with inexpensive cameraready art all ready to print for brochuresand fact sheets, plus radio interviews,topics, and TV suggestions. They alsocontain resource lists you can use toobtain materials or further help from othersources.

Awareness campaigns help theemergency manager grow within his orher community, but there are other publicaffairs functions that can be used to builda strong emergency program.


Unit 5-22

• Deliver speeches to local communitygroups.

• Develop personal relationships with

the local media. Don't just call or mailpublic releases. Deliver them andmeet the reporters who can tell thestory.

• Hold open houses at the Emergency

Operating Center where thecommunity can visit and find out justwhat an emergency manager does.

• Offer to make presentations at local

elementary and high schools.Reaching young minds is important,and often what is learned throughthese sessions can save a life later.

• Work with the local Scout leaders, to

initiate work among both the Boy andGirl Scouts toward an emergencymanagement badge.

• Invite the media to participate when

exercises are conducted, either as aplayer or an evaluator. This will helplocal reporters and telecasters learnmore about the importance ofemergency management.

• Work with the Chamber of Commerceto distribute posters, set up exhibits,etc. during high hazard seasons.

• Cable networks have cablevision time

for local public service. An emergencyprogram, beamed in your area as aregular feature, can add to yourcommunity's safety knowledge andget more support for your programs.

• Call press conferences to announce

initiatives and to comment on ongoingactivities or progress of projects.Consider holding monthly breakfastsor coffees with the local media.

It is recognized that your priorities lie withthe emergency management programsand plans. However, following through ona public affairs plan can assist in raisingthe level of knowledge on the importanceof emergency management.


Unit 5-23


SELF TEST REVIEW

Answer the following questions to test your knowledge of these Unit 5 facts. Read eachquestion carefully, then write in the answer that you think is correct. Answers can be foundon page 5-24.

1. What is the purpose of a message form?

2. List the six types of information required by the press immediately following anemergency.

3. What is the quickest way to handle rumors?

4. In addition to dealing with the media during an emergency, the emergencymanager's public information responsibilities include:


Unit 5-24


1. To provide complete and ready information on the emergency.......................5-16

2. Who, what, when, where, why, and what next.................................................5-18

3. Get out accurate facts using a credible spokesperson....................................5-20

4. Pre-disaster public safety education ...............................................................5-21



Unit 5-25

Damage AssessmentDamage assessment is a key step incaring for the long term needs of thepeople in your community. Delayedassessments may cause hardship as wellas erode confidence in the ability of thecommunity to react in time of emergency.

Trained observers should be used toassess damage. You can use assessorsfrom the municipal tax office orappraisers from banks, savings andloans, or real estate offices. Firedepartments and insurance companiesalso sometimes have experienceddamage assessors. The damageestimates will be more reliable if theestimators are familiar with conditionsprior to the emergency.

One fact cannot be overemphasized—take pictures of the damage. Writtendocumentation is important, but nothingtells more than a photograph.

THINGS TO DOMake a list of the individuals in your areawho are qualified to assess the damagedone or the replacement value ofproperty in your community. Contact yourlocal tax office as well as local financialinstitutions.

Make sure the people who areresponsible for damage assessmentknow what to do. Their job is to assessthe damage, and not to make statementsto the media. Their work should be keptas confidential as possible. The mediacan be informed at official news briefingsor through news releases. It is importantthat damage assessments be donequickly, for as you will learn, much

federal or state aid will. depend upon theassessment of damage.

Emergency program managers collectdamage assessment information in manydifferent ways. There are no easyguidebooks on how to do it. You will havethe greatest success if you develop asystem and stick to it. The system shouldfit your needs. It should be as simple aspossible but have all the vital information.

The determining factor is how you aregoing to use the damage information.While you may use the damageassessment information to report to thenews media, or help substantiateinsurance claims, or make an annualreport to your executive, the basicpurpose of an assessment is to obtainassistance. Your damage assessmentmay even be the basis for a majorPresidential Disaster declaration if thatshould be necessary.

Figure 5-14 lists several categories ofinformation of value in a damageassessment. The first group ofcategories, A through I are the categoriesrequired for a major disaster request. Theother categories will prove useful inobtaining other state and federal agencyassistance. - Next to each category arethe names of an appropriate local orcounty agency that could be responsiblefor doing that part of the damageassessment. As you develop apreparedness plan for damageassessment, contact each of theseagencies to find out about their


Unit 5-26

capabilities and determine how they canbe used in emergency response.

Each of the federally required categoriesis briefly explained in the sections thatfollow.

Category A: Debris Clearance is theremoval of damaged structures or objectsfrom public roads and streets, publicproperty, and private property. Moneyspent by local government on debrisclearance (but not by individuals) is oneindicator of local emergency efforts thatshould be included on an application forstate or federal assistance.

Category B: Protective Measures aretaken to prevent damage when the eventis occurring. For example, sand baggingof a riverbank, evacuation, traffic control,and barricades. These measures may betaken to protect life and safety, property,and health. Again, this is an important

category to demonstrate local efforts atcombating the emergency.

Category C: Road Systems includeroads, streets, bridges, and culverts. Youmight break the damage assessment intostate highways, county roads, and city orvillage roads if useful. The categories ofdamage might range from some damagerequiring repair to complete washout ordestruction.

Category D: Water Control Facilitiesinclude damages to dikes, levees, dams,drainage channels, irrigation works, andother facilities.

Figure 5-13: A good damage assessment is essential to obtain assistance.


Unit 5-27

Category of Damage Assessment Sources of Information

A. Debris Clearance Surveyor, Engineer, Public Works

B. Protective Measures Engineer, Law Enforcement Agency, FireDepartment

C. Road Systems County or City Engineer, HighwayDepartment

D. Water Control Facilities Public Works, Health Agency

E. Public Buildings and Equipment Public Works, Building Commission

F. Public Utility Systems Health Agency, Public Works, SanitaryCommission

G. Public Facilities Under Construction Building Commission, Surveyor

H. Private Nonprofit Facilities Health Agency, Public Works, SchoolSuperintendent

I. Parks, Recreation, Other Recreation Commission

Private or Individual Dwellings County and City Assessors

Businesses County and City Assessors

Agricultural Damages County Agent, County Emergency Board

Individual Assistance Red Cross, Public Health, Public Welfare

Political Jurisdiction's Financial Effort Auditor, Treasurer

Figure 5-14: Categories of damage assessment information and likely sources ofinformation


Unit 5-28

Category E: Public Buildings AndEquipment should include the numberand cost of buildings, supplies and/orinventory, and vehicles or equipment thatwere damaged or destroyed.

Category F: Public Utility Systems inyour political jurisdiction that sustaindamage could include the water system,sanitary sewer, storm drains, light andpower, and other utilities.

Category G: Public Facilities UnderConstruction should be listed in twocategories. Both may be eligible forspecial disaster assistance. Therefore,your damage assessment should includeany such damage.

Category H: Private NonprofitFacilities may also be eligible for aid.They include educational, emergency,medical, and custodial facilities. Thiscategory does not include churches orplaces used exclusively for worship.

Category I: Park, Recreational, AndOther Facilities should include damageto parks, sports fields, communitycenters, etc.

The following additional categories willbe useful for obtaining assistance fromfederal agencies and state programs.

PRIVATE OR INDIVIDUAL DWELLINGSare homes destroyed or damaged- Waterdamage on the interior or wind damage toshingles, windows, or siding areexamples. Mobile homes should beincluded in this category as a separateentry. For obtaining federal disaster aid,it will be helpful to know how manyhomes were insured (including regularinsurance and the National FloodInsurance Program, if appropriate).

BUSINESSES include buildings damagedor destroyed, inventory damaged, orequipment damaged or destroyed. Youmight consider recording the number ofbusinesses covered by insurance, asabove.

AGRICULTURAL DAMAGE shouldconsist of partial and total damage tofarm buildings, the number of livestockmissing or destroyed and the number ofacres of crops destroyed. The dollarvalue of losses should also be estimatedand percent of loss covered by insuranceincluded.

INDIVIDUAL ASSISTANCE pertains tothe disaster victims and theirrequirements for temporary housing;food, shelter, and clothing;unemployment benefits; and food stamps.The local jurisdiction will use thisinformation to determine the need for theFederal Individual and Family GrantProgram of Public Law 93-288.

POLITICAL JURISDICTION FINANCIALEFFORT is the final category. inrequesting a Presidential disasterdeclaration, the Governor must indicatecosts incurred by localities and the statein disaster operations. The record-keeping at the local level is the basis forthis request. Some of these expendituresinclude total mileage, salaries paid abovenormal to government officials, andovertime.


Unit 5-29


SELF TEST REVIEW

Answer the following questions to test your knowledge of these Unit 5 facts. Read eachquestion carefully, then write in the answer that you think is correct. Answers can be foundon page 5-30.

1. What are four uses of damage assessment information?

2. List five of the nine types of damage assessment information required by thefederal government on a disaster application.


Unit 5-30


1. Report to press; help substantiate insurance claims; makeannual report to executive; basis for requesting PresidentialDisaster Declaration ........................................................................................5-25

2. Debris clearance; protective measures; road systems; watercontrol facilities; public buildings and equipment; public utilitysystems; public facilities under construction; private nonprofitfacilities; park, recreational, and other facilities .............................. 5-26 thru 5-28



Unit 6-1

RECOVERYUNIT 6


Unit 6-2

IntroductionThe final phase of emergencymanagement is RECOVERY. Recoverycan be divided into short-term and long-term recovery efforts. Short-termrecovery grows out of the response effort.During the response phase, emergencyrepairs to buildings are made asprotective measures against furtherdamage or injury.

SHORT-TERM RECOVERY is therestoration of vital services and facilitiesto minimum standards of operation andsafety. During short-term recovery,severely damaged buildings arescheduled to be replaced or removed,water and sewer repairs are made, andelectricity and telephone service returnedto normal.

LONG-TERM RECOVERY may continuefor a number of years, as the communityslowly returns to pre-emergency or betterconditions. Long-term recovery mayinclude the complete redevelopment ofdamaged areas.

THINGS TO DOReview the last major emergency in yourarea and list the short-term and long-termrecovery efforts. Note if any of the long-term efforts are still in operation. If youare new to the job, conduct your reviewwith local officials who were present atthe time. If you live where there has notbeen a recent major disaster, review therecovery needs of one family or businessafter a fire, or visit an area that has had adisaster, to get an idea of the problems ofrecovery.As an emergency program manager, yourrole during the recovery phase ofemergency management is just as vitalas it was in the mitigation, preparedness,and response phases. A key element inthe recovery phase is to keep your eyesopen for ways in which to reduce yourcommunity's vulnerability to a repeat of asimilar emergency. Also, you willcontinue to be your community's liaisonwith the state and federal assistanceprograms.

Figure 6-1: Keep your eyes open forways to reduce the effects of hazardsin the future


Unit 6-3

Recovery AssistanceThere is no clear cut distinction as towhere response ends and short-termrecovery begins. For example, if a publicworks crew is dispatched to board up abuilding, this is part of the responseeffort. If in the process they makeemergency repairs to the building, this ispart of the recovery effort. In general, theplans for the recovery effort are probablymade during the response phase ofemergency management. For example,the damage assessment necessary forrequesting federal assistance is madeduring the response phase as you areresponding to the needs of thecommunity for assistance. When theassistance arrives, that part of therecovery phase begins.

Few communities could expect to recoverfrom a major disaster without assistancefrom their state or federal government. Ifa major disaster occurs, you should beprepared to request federal or state aid.

Documentation

The most common reason for failure toobtain federal assistance is lack ofadequate documentation. Documenting adisaster simply means providingevidence or proof of what happened.Photographs of the damage provide themost irrefutable evidence. Take picturesof the damage, the repair work, andcompleted restorations. You cannot taketoo many pictures.

Keep careful records of expenditures oftime and money. If you have approacheddamage assessment in a systematic way,

as you learned in the last chapter, yourcosts will be well documented. Federaland state agencies require an audit trailfrom the selection of expenditure to acanceled check and proof that the workwas completed. If you cannot provideproof that money was spent, you cannotexpect to be reimbursed for theexpenditure. In summary, you will havegood documentation if you:

1 . Take pictures of damage and repairs.2. Take notes on damages and repairs.3. Clip and file press reports.4. Record all expenditures.5. Get all others to do the same.

Figure 6-2: Document your losses.


Unit 6-4

How to Get Aid

The federal, state, and local governmentsmust work together in any majoremergency. The emergency assistanceplan is based on each level ofgovernment beginning assistance whenthe next lower level is overwhelmed bythe scope of destruction caused by thedisaster. The exact procedure to getfederal or state assistance varies fromstate to state, but the following describesgenerally how it is done.

When the emergency or disaster occurs,the emergency preparedness plan is putinto operation and the EOC is staffed.The state emergency management off iceis notified. As soon as possible, adamage assessment should be made.Expenditure records and photographs ofdamage should also be initiated.

If your initial assessment results in theneed for resources beyond your localcapability, your state emergencymanagement off ice should be notified ofthis fact immediately. Most states requirethe chief executive of the localgovernment to officially request agovernor's declaration of disaster in orderto obtain state assistance. The localdamage assessment and the report to thestate emergency management office arethe responsibility of the local emergencyprogram manager.

The state, acting on the information provided,will dispatch personnel and equipment to thedisaster area and assist in the response andrecovery effort. If it appears to the state thatfederal assistance will also be required,FEMA will also be alerted to the situation.FEMA may also dispatch representatives tothe area.

As the local emergency program manager,you would then work with the federal andstate personnel in an expanded assessmentof the damage to your area. Out of this jointassessment will come an estimate of thetypes and extent of federal disasterassistance that may be required. If aPRESIDENTIAL DISASTER DECLARATIONappears to be warranted, your stateemergency officer would request thegovernor of your state to submit an officialrequest for a presidential declaration.Supporting damage and local commitmentinformation would be sent with the request.

Only the governor or acting governor of yourstate can request a federal disasterdeclaration by certifying the expenditure ofstate and local funds and implementation ofthe state emergency plan. The state willassume most of the responsibility forseeking federal assistance. As theemergency program manager, you will beresponsible to provide the state officials withthe necessary documentation to support therequest for federal aid.

A governor's request for a declaration canresult in three responses from the federalgovernment, each with a different form ofassistance. The federal government could:

A. Issue a Presidential declaration of aMAJOR DISASTER which would freeall the resources of the federalgovernment for assistance.

B. Issue a Presidential declaration ofEMERGENCY which would focus onspecific assistance needed to savelives, protect property, public healthand safety, or lessen the threat offuture disaster.

C. Provide DIRECT ASSISTANCEfrom various federal departments


Unit 6-5

through their own emergency ornormal programs without aPresidential declaration.

THINGS TO DODetermine what emergency orcontingency funds are available from yourstate emergency management office andwhat the specific procedure is in yourstate to request federal assistance. Writedown the procedure and insert it in yourplan.

What to Expect from FederalInvolvement

If the President declares anEMERGENCY or MAJOR DISASTER, aFederal Coordinating Officer (FCO) willbe assigned to coordinate federalassistance. The governor will appoint aState Coordinating Officer (SCO). TheSCO is the main liaison between theFCO and state and local officials. TheSCO will be your main contact.

Once on the scene, the FCO isresponsible for an initial appraisal ofneeded assistance. The FCO is alsoresponsible for coordinating all thefederal agencies and programs involvedin assistance plus, in most cases, theprivate relief efforts of the AmericanNational Red Cross, the Salvation Army,The Mennonite Disaster Service, andothers.

A DISASTER RECOVERY CENTER(DRC) may be set up. Such a center isusually staffed with federal, state, andlocal officials as well as representativesfrom the private relief organizations. ADisaster Recovery Center is a centralizedlocation for assistance to individuals.Figure 6-3 lists the forms of assistance

which may be available. It is up to theFEMA regional director to decide whichtypes of assistance will be offered.

Applications for aid from individuals. aremade right at the center. This singleapplication procedure is designed tosecure aid as efficiently as possible andwith minimal burden on the applicant.Counseling is also provided to help theapplicant through the post-disasterrecovery process. The victim is guidedthrough the application process andgiven help in selecting likely sources ofaid.

DRC Assistance

Temporary housingMortgage or rent paymentsUnemployment paymentsJob placement counselingLow interest loans to individuals, businesses and farmersFood couponsIndividual and family grantsLegal servicesConsumer counselingMental health counselingSocial Security assistanceVeterans assistance

Figure 6-3: Assistance available through aDisaster Recovery Center.


Unit 6-6


SELF TEST REVIEW

Answer the following questions to test your knowledge of this part of Unit 6 facts. Readeach question carefully, then write in the answer that you think is correct. Answers can befound on page 6-8.

1. In addition to time, what are the differences between short-term and long-termrecovery efforts.

2. List two vital roles for the emergency program manager during the recovery period.

3. Documentation is important to your receiving federal assistance. What are fourthings you can do to insure good documentation?

4. What kind of assistance can you expect from a presidential declaration of:

MAJOR DISASTER

EMERGENCY

5. What kind of federal assistance does not require a presidential declaration of amajor disaster or emergency?


Unit 6-7

6. Which government official is responsible for assessing recovery needs andcoordinating resources for federal agencies?

7. What is the purpose of a Disaster Recovery Center (DRC)?


Unit 6-8

CORRECT ANSWERS TO SELF TEST REVIEW ................. Review Pages

1. Short-term recovery involves the restoration of vital servicesand facilities to minimum standards of operations and safety.Long-term recovery is returning the community to pre-emergencyor better conditions and may include complete redevelopmentof damaged areas or their relocation away from a hazardous zone..................6-2

2. Liaison with state and federal agencies, and seeking ways toreduce the vulnerability of your community to a similar disaster .......................6-2

3. Take pictures, take notes, clip press reports, and recordall expenditures .................................................................................................6-3

4. MAJOR DISASTER-all the resources of the federal government;EMERGENCY-specific assistance needed to save lives, protectproperty, public health and safety, or lessen the threat of future disaster.........6-4

5. Direct assistance ..................................................................................6-4 and 6-5

6. Federal Coordinating Officer .............................................................................6-5

7. To provide a centralized location where disaster relief agencieshelp victims determine needs and resources ....................................................6-5



Unit 6-9

Community Expectations About AidWhat does a community expect after anemergency or disaster? In most cases,the local community does not knowexactly what type of local, state, orfederal aid to expect. However, theyexpect you as the emergency programmanager to know. Most communities willexpect the emergency program managerto be totally familiar with the state andfederal assistance programs.

How do you find out about what type ofaid is available? Most emergencyprogram managers and governmentofficials who have had disasterexperience recommend that some type ofpre-disaster RECOVERY PLANNING bedone. Most local governments usuallyfind themselves in circumstances thatexceed their resources during a disasterand need state and federal assistance.As an emergency program manager, youshould know what to do. The communityexpects this of you.

THINGS TO DOFind out what recovery assistanceprograms have been used by yourcommunity in the past. If assistance toyour community has been limited,arrange to meet with an emergencyprogram manager in a neighboringjurisdiction who has had disasterexperience. If disaster assistance hasbeen limited in your entire area, see ifyou can organize a group of emergencyprogram managers and have a stateofficial or an emergency manager froma distant area with disaster experiencespeak to the group.

A good way to become familiar with someof the assistance programs available is toreview what programs have been used byyour community in the past. A review ofthis type will give you some idea of whatis available, and make your formalinvestigation into other programs easierto do.

Federal Assistance

In the previous section, you learned thebasic outline on how to go about seekingfederal assistance. Now you will learnmore about the specific types of aid thatare available from the federalgovernment.

There are several resources available tohelp you identify the types of aidavailable. FEMA publishes a ProgramGuide to FEMA assistance as well as theDigest of Federal Disaster Assistance.Various groups in the private sector, mostnotably the Red Cross, have undertakenefforts to catalogue available assistancefor individuals and local governments.

You can use these guides to find outabout the single greatest source offederal disaster assistance, the DisasterRelief Act of 1974 (Public Law 93288).This Act of Congress is implemented byFEMA following a federal declaration ofan emergency or major disaster.

Federal aid may come in the form ofgrants, loans, loan guarantees, ortechnical assistance. A federal GRANT isa direct gift of money from thegovernment. You must apply for a grant.


Unit 6-10

If you have a member of your communitywho is skilled in grantsmanship, theirexpertise would be a valuable asset.Grants take time to get. They also usuallyrequire some type of matching funds fromthe local community. Before applying fora grant, make sure your community canafford the matching fund requirement andthat it is capable of maintaining theproject to completion.

The federal government may also supplylow interest loans or loan guarantees. ALOAN GUARANTEE is simply aguarantee to a local bank or lendinginstitution that a loan will be paid back.For example, if a local businessmantakes out a guaranteed loan and goesbankrupt, the federal government isresponsible to repay the unpaid portion ofthe loan. You can be sure thegovernment is very careful in decidingwho qualifies for a guaranteed loan.

TECHNICAL ASSISTANCE is usuallyprovided in the form of experts whopossess skills which are not available inthe local community. For example, anagricultural expert may be sent in toassess crop damage or the Army Corpsof Engineers to help plan future floodcontrol.

Let's look in a little more detail at some ofthe specific types of federal assistance.

Agriculture

Agricultural disasters could range fromreclaiming land after a flood to major cropdamage as a result of drought or insectinfestation. There are several types ofagricultural assistance programs.GRANTS are available for the purpose ofremoving damaged timber from privately

Figure 6-4: Assistance is available torecover from agricultural losses.

owned lands when it is in the publicinterest to do so. The local governmentmay be authorized to reimburse anyperson for expenses incurred in removingdamaged timber which poses a threat tolife, property, or creates a flood hazard.DIRECT PAYMENTS are available tofarmers when they are prevented fromplanting or suffer substantial loss onplanted acres because of drought, flood,or other natural disasters beyond theircontrol.

Emergency guaranteed/insured loans areavailable to help farmers and rancherscover their losses resulting from adisaster and return the operation to asound financial position. INSUREDLOANS are also available for irrigation,drainage, and other soil conservationmeasures. Farmers can also get CROPINSURANCE to ensure that they willhave a basic income in the event ofdrought, freeze, insect, or other naturalcauses of a disastrous crop loss. There isalso an EMERGENCY FEED program toassist in the preservation andmaintenance of livestock where there isnot sufficient feed because of a naturaldisaster.


Unit 6-11

Business

The Small Business Administrationprovides long-term LOW-INTERESTLOANS for sources of employment in adisaster area so that they may resumeoperations as soon as possible in orderto assist in restoring the economicviability of the community. Business andindustrial grants are also available.GRANTS may be used for financingindustrial sites in rural areas includingthe acquisition and development of landand the construction, conversion,enlargement, repair, or modernization ofbuildings, equipment, access roads, andother purposes. Loans are also availableto provide working capital for theexpansion of a business if it createssubstantial new permanent employment.

ECONOMIC DISLOCATION LOANS areavailable to assist those otherwisefinancially sound businesses in theimpacted regions that will either becomeinsolvent or be unable to return quickly totheir former level of operations.

Emergency Services

In anticipation of, or after a presidentialdeclaration of a major disaster, FEMAmay provide TEMPORARYCOMMUNICATIONS FACILITIES. Otheremergency services provided includefood, water, mass feeding and shelterservices in time of natural disaster.Grants are available to remove debrisand wreckage resulting from a majordisaster from both public and privatelands. MANPOWER AND EQUIPMENTfor the law enforcement, medicalevacuation, refugee evacuation, andaerial and mobile search and rescueoperations can be obtained. Finally,temporary public transportation servicesmay also be provided.

Perhaps the most common emergencyservice provided by the federalgovernment is the FORECAST ANDWARNING SERVICE for all weather.-related natural disasters such ashurricanes, floods, and tornadoes.

Grants are also available to assist in theRECONSTRUCTION and repair ofhighways and roads in a disaster area.Grants may be used for planning,surveying, right-of-way acquisition, newconstruction, reconstruction, and repair ofunsafe bridges. The EnvironmentalProtection Agency as well as the U.S.Coast Guard are also ready to respond ifit appears ENVIRONMENTAL DAMAGEmay occur due to a pollution discharge.

Figure 6-5: Aid to businesses.


Unit 6-12

Fire Suppression

Federal assistance is available for theSUPPRESSION of any fire on publiclyor privately owned forest or grasslandwhich threatens to become a majordisaster. Grants, research contracts,and technical assistance are alsoavailable to prevent fires. These includeprograms to improve suppressiontechniques, building constructiontechniques, and human behavior in firesituations.

Figure 6-6: Fire Assistance.

Flood Prevention and Protection

The National Flood Insurance Programmakes INSURANCE available againstflood-related losses to buildings andcontents of property owners and rentersin communities that have agreed to adoptand enforce wise floodplain managementpractices. NFIP provides the communitieswith maps of their special flood hazardareas and offers technical assistance inadopting and enforcing required floodplain management ordinances andregulations.

Specialized services and funds areavailable from other federal agencies,such as the U.S. Army Corps ofEngineers, to lessen the effects of floodsthrough structural FLOOD CONTROLprojects such as dams and levees.

Health Services

After a presidential declaration of a majordisaster, funds for CRISIS COUNSELINGservices and the training of disasterworkers are available from FEMA. Also,at the request of FEMA, the appropriatefederal agencies may respond to planand supervise health programs, assistand advise in the establishment ofprograms for the control, treatment, andprevention of DISEASE, assist in theprotection of the food and water supplies,and assist in the supervision andestablishment of temporary cemeteriesand grave registration.

Grants are available for the repair orreplacement of HEALTH FACILITIESdamaged or destroyed by a naturaldisaster. Grants are also available for theexpansion and improvement ofemergency medical services if they arefound to be inadequate in times ofemergency. Technical assistance andtraining are also available to assist inestablishing and managingEMERGENCY MEDICAL SERVICESunits.

Individual Needs

After a presidential declaration, LOANSare available for single family homes,including mobile homes, for those whoare displaced. TEMPORARY HOUSINGmay also be provided at no cost to thosewho are displaced. Direct grants may. bemade to individuals or families to meet


Unit 6-13

disaster-related necessary expenses.Other types of aid available to individualsinclude legal services, unemploymentassistance, tax information andeducational assistance, emergency foodstamps, and loans for refinancing, repair,rehabilitation, or the replacement ofproperty.

Community Assistance

Loans and grants are also available foryour local community. Areas which maybe included are utilities RESTORATION,school CONSTRUCTION and equipment,REPAIR and restoration of public as wellas private nonprofit facilities, and fooddistribution. COMMUNITY DISASTERLOANS are also available to providefunds to a local government which hassuffered a substantial loss of tax andother revenue from a disaster.

A condition for receiving Federalassistance following a Presidentiallydeclared disaster is that recipients musttake measures to mitigate the hazards inthe disaster area. To accomplish this,FEMA provides technical assistance andsupport for State and local mitigationplanning. Also, the Interagency HazardMitigation Team or a FEMA/State SurveyTeam works with local governmentapplicants to evaluate the hazards anddevelop mitigation plans.

THINGS TO DOReview your role as the emergencyprogram manager as specified in yourlocal emergency management ordinancefor the recovery phase. Also, if your officedoes not have a copy of the Digest ofFederal Disaster Assistance Programsget one as soon as possible from FEMA.

New Partners

Recall when you were developing yourcommunity resource inventory in thePreparedness unit, individuals within yourcommunity who had special talents orequipment were included on your list.These individuals could be consideredyour partners in the response effort.During recovery, you will be developingrelationships and working with a new setof partners.

Some of your new partners are alreadyknown to you, such as the officials fromyour state emergency management officeand representatives from FEMA. Inaddition, you will continue to work withthe people who helped you to assess thedamage, such as tax assessors, andinsurance and financial institutionappraisers.

However, you will also need to work withnew community resources or partners.You will probably develop workingrelationships with most banks and othertypes of financial institutions in thecommunity. Just because the federalgovernment insures or guarantees aloan, that does not mean that the moneycomes from the government. In mostcases, the money comes from banks andsavings and loans in your localcommunity or surrounding areas. Assuch, you may be requested to helpthose in your community requestingloans, and even appear with them atsome time in the loan applicationprocess.

As you begin the long-term recoveryeffort, you will also develop newrelationships with people on various localgovernment commissions and


Unit 6-14

departments. For example, you may findyourself working with the localgovernment planning commission, zoningauthorities, license and permit offices,and mitigation experts.

Recovery Planning

You and your partners in recovery willwork together much better if youunderstand the recovery process andhave a general plan for any recoveryneed. Such a plan should be attached tothe preparedness and response plan youstarted earlier. Its primary purpose is tospell out the major steps for managingsuccessful recovery. For each step youwill also designate key partners, how tomobilize them and their roles. The planshould have at least the following sevensteps:

1. Gather information2. Organize for recovery3. Mobilize resources4. Plan, administer and budget5. Regulate

6. Coordinate7. Evaluate

Planning for recovery is not a commonpractice. Yet, recovering from disastersgoes on far longer and costs much morethan preparedness or response. It onlymakes sense that you look for chances toplan recovery.

During short-term recovery, buildings arerepaired and people's immediate needsare taken care of, and assistanceprograms are put into effect. There is noclear cut distinction where long-termrecovery begins. They are not twodistinctly different phases of recovery.Long-term recovery is simply thoserecovery efforts which are still inoperation long after the disaster. Long-term recovery includes everything fromcomplete redevelopment of the disasterarea to mitigation efforts to prevent asimilar disaster on an on-going basis foryears after the emergency.

Figure 6-7: Recovery brings you Into contact with a new set of emergency managementpartners.


Unit 6-15

Figure 6-8 shows the steps that aretypically performed during long- termrecovery. You will note the transition fromaction objectives (restoration of utilities,for example) to planning and coordinationobjectives. This suggests again theimportance of recognizing thatemergency management is a partnershipwith a wide variety of individuals andorganizations and requires the wholerange of management skills, fromcommand and control, to coordination, toplanning. The effective emergencyprogram manager strives for a balanceamong these skills so that she or heplays an important role in all phases ofemergency management.

THINGS TO DOOutline a general recovery plan whichyou could follow in the recovery phase ofan emergency. Make a list, includingnames, addresses, and phone numbers,of those members in your community whomay play a role in any recovery effort.


Unit 6-16

ACTIONS TYPICAL TO THE RECOVERY PERIOD

Short-Term Long-TermInformation Gathering andDamage Assessment

Documentation—Photographic pressclippings, written estimates.

Documentation—Records of expenditures.More detailed damageassessment.

Administration Notification of StateEmergency ManagementOffice. Notification of FEMA.Identification of aidprograms.

Submit applications forloans, grants, and technicalassistance.

Mobilization Restore utilities. Temporaryhousing and transportation.Secure hazardous property.Temporary food andclothing.

Implementation of federalassistance programs.Reconstruction of damagedareas.

Regulation Assess needs for speciallaws or permits.

Get approval for proposednew laws or permits.

Planning Short-term planning toreturn community servicesto pre-disaster levels.

Long-term master plan forcommunity development.

Coordination Coordinate transition fromresponse to recovery.

Coordinate among federalprograms, serviceorganizations, and localresources.

Evaluation Monitor recovery effort Monitor recovery effort,evaluate if new aid isneeded.

Figure 6-8: Steps for short-term and long-term disaster recovery.


Unit 6-17

Redevelopment as MitigationSometimes, after a major disaster, anentire community changes by virtue of thefact that not much of the originalcommunity is left. Certain areas may becompletely leveled, and new buildingsmust be designed to take their place.REDEVELOPMENT refers to thecomplete replacement of structures, notjust structure repair. The redevelopedareas may or may not resemble the areaas it appeared before the disaster.

Before redevelopment projects begin, youshould be sure that all the appropriateofficials are aware of why such heavydamages occurred. Redevelopmentprovides the opportunity to reduce thechances that similar structural damagewill occur again. Your task is to point outthat redevelopment officials (public andprivate) must think of ways to rebuild thedamaged structures so that the next timethe same hazard strikes, the impact willbe greatly reduced.

Your job here is to get everyone involvedto think about whether their decisions canreduce the potential for future disasterslike this one. You should help cityengineers ask themselves if buildingcodes respond to this particular hazard.You should help planners ask themselveswhether the damaged area should berezoned for lower density uses. Youshould help residents ask themselveswhether rebuilding in the area is notsimply asking to suffer again. You shouldhelp bankers ask themselves whetherredevelopment loans in the area areperpetuating misuse of land in the

Figure 6-9: Redevelopment planningshould include hazard analysis.

community and human suffering fromeconomic disruption.

You cannot be expected to know theanswers to all these questions yourself.But, you should take responsibility forasking them, and ensure that your chiefexecutive can decide when they havebeen satisfactorily answered.

Convene your key emergencymanagement “partners “ to conduct thispost mortem. They will add their own veryuseful perspectives on the question,"What went wrong?" Also, involving themin this process will generate support forresource requests you feel compelled tomake so that the same things do not gowrong again.


Unit 6-18

In this attempt to uncover problems, donot ignore the other side of the coin,"What went right?" Identifying theconsistently good actions taken servesthe purpose of building morale whilepointing to effective functions in futureprogram development. Finally, thesuccess stories may serve as models forimprovements by others. Effective partsof your operations may show how toimprove less effective parts.

Often, changes in local laws such asbuilding codes or zoning are much easierto get support for after an emergencywhich calls attention to their weaknesses.For example, suppose a major hotel fireoccurs with loss of several lives. Afterinvestigation, it is determined that if thehotel had adequate sprinkler systems onall floors, only minor damage would haveresulted. After such a disaster, it may bevery easy to get mandatory sprinklersystems for all hotels into the localbuilding and fire prevention codes.

In any redevelopment effort, alwaysconsider your local community's masterplan for the future. Local officials oftenfind themselves making decisions onrestoration or redevelopment without agreat deal of thought because ofpressures from the community citizens toget redevelopment started. As anemergency program manager, your jobdoes not end with the emergencyoperation itself. You should be preparedto assist your local officials and advisethem if their redevelopment plans are notin the best interests of emergencymanagement.

Remember, however, comprehensiveplanning takes time which is often notavailable in the aftermath of a disasterwhen social and economic pressures are

moving toward a quick return to normal.Mitigation objectives are not easilyobtained, even during normal times.

Capitalizing on Events

One of the most effective ways to getneeded support for emergencymanagement programs is to make themhighly visible in the aftermath of adisaster. Why? Because right after anemergency, local officials are mostfamiliar with your efforts and the public iswilling to listen. Don't ignore the public asa means of drawing attention to yourprogram and motivating elected officials.

Funding for emergency management isusually one of the items of lower priorityin a community's budget. Because of theeconomic and financial constraints put onmost local governments, especially ininflationary times, local officials are oftenreluctant to raise taxes in order toinstitute new programs. As a result,funding for many emergencymanagement programs is minimal.

How much your community is willing tospend on emergency management isoften based on the history of thecommunity. A community with no recentdisasters or major emergencies is notlikely to approve large expenditures foremergency management. However,immediately after a disaster or majoremergency your local officials are morewilling to listen to your needs as anemergency program manager. Don't passup the opportunity to capitalize on theirwillingness to listen.

There are several methods which can beused to capitalize on a recentemergency. First, review what happened.


Unit 6-19

Were you prepared? What weaknesseswere there in your preparedness plan?Did the recovery effort go smoothly? Didyour EOC function as planned? Werecommunications adequate? There areprobably over a hundred questions youcould ask. However, the most basicquestion is "What are the lessons for thefuture?"

The next step is to determine what canbe done to correct the problems youidentified in your review of the situation.Do you need more communicationsequipment? Do you need more help on aday-to-day basis to keep your resourceinventory up to date? Do you needadditional help in your EOC during anemergency?

Recall in an earlier unit you were told todo a needs assessment. After a majoremergency or disaster is another goodtime to do a detailed needs assessment.After a disaster your needs will be basedon facts, not on probabilities.

The review of the disaster should also bemade with a view toward mitigationopportunities. You should also assessyour community's needs from thestandpoint of changing or strengtheninglocal codes or ordinances. As youlearned earlier, ordinances can beeffective tools of mitigation, in buildingstandards and zoning, especially.

Once you have a good idea of what isneeded, begin your campaign. Meet withyour local officials. Explain the problemsyou had. Ask "What if it happens again?"After a disaster, with the memory stillfresh in their minds, is one of the besttimes to make a presentation to them.

Figure 6-10: What are the lessons for yournext emergency?

If there are certain issues or needs whichyou feel absolutely must be met, musterpublic support. As you learned earlier, agood working relationship with the localnews media can make your job mucheasier. Seek their assistance in gettingthe word out. You may even have toadvocate unpopular positions, such asreorganizing offices to become moreefficient. However, do not hesitate tosuggest that you send up a trial balloonfor an elected official. This is often anacceptable practice, for it allows theofficial to get feedback from the newsmedia and constituents before he or shemust take a stand.

Recovery: Part of Your Job

It should be clear to you that your job asan emergency program manager doesnot end when a disaster is over. Unlikethe firefighters who return their


Unit 6-20

equipment to the station and wait foranother call, your job is never over. Insome cases, such as a hurricane orearthquake, the recovery stage may goon for years. Even in minor emergencies,battles over zoning changes orconstruction techniques may be fought incouncil meetings or commission hearingsfor several years. Don't ever getdiscouraged. The wheels of governmentturn slowly. Often the emergencyprogram manager may be just the oil thatis needed to make the wheels turn just alittle bit faster.

THINGS TO DOObtain a copy of the local zoning map forthe emergency management office if youdo not have one. Find out the procedurefor obtaining a zoning variance.

Make a list of the decisions that wouldhave to be made if the most probablehazard occurred In your community.What type of federal aid would you mostlikely have to apply for and how wouldyou do it?


Unit 6-21

HOW WELL HAVE YOU LEARNED?

SELF TEST REVIEW

Answer the following questions to test your knowledge of this final part of Unit 6 facts.Read each question carefully, then write in the answer that you think is correct. Answerscan be found on page 6-22.

1. Write a definition for the following types of federal recovery assistance.GRANT

LOAN GUARANTEE

TECHNICAL ASSISTANCE

2. List seven steps which should be in your Recovery Plan.(1)(2)(3)(4)(5)(6)(7)

3. What is your mitigation responsibility during the redevelopment that follows adisaster?

4. Why is making your emergency management program highly visible in theaftermath of a disaster an effective way to get needed support from governmentofficials and the community?


Unit 6-22


1. GRANT—Direct gift of money from the federal governmentwhich usually requires matching funds.

LOAN GUARANTEE—Guarantee to local bank or lendinginstitution that a loan will be repaid.

TECHNICAL ASSISTANCE—Usually experts who possessskills which are not available in the local community .........................6-9 and 6-10

2. (1) Gather information(2) Organize for recovery(3) Mobilize resources(4) Plan, administer, and budget(5) Regulate(6) Coordinate(7) Evaluate ..................................................................................................6-14

3. To make certain that officials charged with rebuilding thecommunity consider ways to rebuild damaged structuresor local new structures so that the next time a hazardstrikes the impact will be reduced....................................................................6-17

4. Right after a disaster, officials are most familiar with yourprogram and the public is willing to listen to your suggestions .......................6-18



Unit 7-1

MANAGING EMERGENCYMANAGEMENT

UNIT 7


Unit 7-2

IntroductionMANAGEMENT is the coordination of anorganized effort to attain specific goals orobjectives. In the case of emergencymanagement, it means an organizedeffort to mitigate against prepare for,respond to, and recover from anemergency.

As the emergency program manager, youare the key person in this effort, Acommunity's ability to react to anyemergency depends upon its willingnessto act in a consolidated and coordinatedmanner. As an emergency programmanager, it is your job to see that it does.

The majority of an emergency programmanager's time is spent preparing for andmitigating possible emergencies. Howwell these efforts are done will determinehow well the community can respond toand recover from an emergency.Mitigation and preparedness arebasically planning stages. Response. andrecovery are action stages. Planning isone of the

most important functions ofmanagement. You are already familiarwith mitigation and operations planningfrom previous units. In this unit you willlearn to apply some basic managementprinciples to overall emergency programdevelopment.

There is much to do in planning foremergency program development.

Planning Guidelines

In planning your emergency program, youneed to know three things:

1. What goals did the emergencyprogram achieve this year?

2. What goals should the emergencyprogram achieve next year?

3. What goals should the emergencyprogram achieve in the future?

Figure 7-1: The EmergencyProgram Manager performskey tasks before, during, andafter any emergency ordisaster.


Unit 7-3

If you were to attempt each year toidentify where your program has comeand where it is going, you wouldprobably focus on several main areas ofprogram concern, including:

• Hazard Analysis• Mitigation Efforts• Emergency Organization• Plans Development• Evacuation Planning and Population

Protection• Contamination Monitoring and Control• Public Education and Emergency

Information• Emergency Support Services• Training and Exercises

Your planning procedures for each ofthese areas could include an annualreview in narrative or statistical form. Bylooking at the answers to the questionsfor each program area above, you wouldend up with an overall view of emergencymanagement in your community.

The Planning Process

As described in earlier Sections of thiscourse, a jurisdiction needs HAZARDIDENTIFICATION in order to be able toassess its needs for an emergencymanagement system. The planningprocess assumes that such anidentification is in place and current.

ANNUAL CAPABILITY ASSESSMENT isdetermined against standards and criteriathat FEMA has established as necessaryto perform basic emergency managementfunctions, e.g.,. direction, control, andwarning; public education and emergencyinformation, and other functions listed onthe previous page. This assessmentresults in a summary of capabilities that

exist and leads to the next step, anidentification of the jurisdiction'sweaknesses.

CAPABILITY SHORTFALL is thedifference between current capability andthe optimum capability reflected in thestandards and criteria established byFEMA. The areas not currently meetingthe assessment criteria should receiveprimary consideration when preparing thejurisdiction's multiyear development plan.

The DEVELOPMENT PLAN is preparedby the jurisdiction to meet the capabilityshortfall identified previously. Each planis tailored to meet the unique situationand requirements of the jurisdiction. Theplan should outline what needs to bedone to reach the desired level ofcapability. Ideally, this plan should covera five-year period so that long-termdevelopment projects can be properlyscheduled and adequately funded. Theplan should include all emergencymanagement projects and activities to beundertaken by the jurisdiction regardlessof the funding sources.

The IEMS planning process brings afuture-oriented system to emergencyprogram planning. Benefits to ajurisdiction can be considerable.Specifically, the jurisdiction will best beable to determine the type of job to beperformed by the emergency manager,the staffing and training necessary, andthe financial resources required toprovide a complete emergencymanagement capability.


Unit 7-4

Job DescriptionsA job description is an essential part ofmanagement. Every emergency programmanager should have a job description.Likewise, every person who reports, tothe emergency program manager shouldalso have a job description. A jobdescription is an administrative tool whichdefines the specific functions, duties, andresponsibilities of a particular position.

A job description is especially importantbecause local government officials areoften unclear as to what an emergencyprogram manager does. Some may havethe attitude that "We seldom have adisaster, so what does the emergencyprogram manager do all day?" Thisattitude leads to a common approach inwhich the emergency responsibilities areonly part of the tasks of the emergencyprogram manager. Additional dutiescould range from energy coordinator topolice chief. A good job description mayhelp to demonstrate the importance andvaried roles of the emergency programmanager.

Let's look at what a job descriptionshould contain. One job description foran emergency program manager isshown in Figure 7-2. Of course, the exactwording will be different from communityto community, and the duties will varydepending upon the size and location ofthe community. As a result, you shouldtalk with the personnel office of yourjurisdiction about the exact format for ajob description. However, in general, ajob description for an emergency programmanager should contain the following:

Job Title: What exactly is your jobcalled? It could be emergency programmanager, civil defense coordinator,disaster coordinator, preparednessplanner or emergency coordinator. Theexact title is not important. What isimportant is that the job has an officialtitle, and appears on the organizationalchart of local government. As you learnedearlier, it should also be provided for inyour local laws or ordinances. Local lawis what gives you the authority to do thejob.

Reporting Line: The job descriptionshould designate to whom you report. Itshould also designate who reports to you.The reporting lines for the day-to-dayoperations of the government may bedifferent from those during anemergency. If they are, the reporting linesfor emergency and non- emergencysituations should be clearly defined. Inthe job description, the positions in thereporting lines should be defined by jobtitle, not by the person holding theposition. If a person's name was used ina job description, all job descriptionswould have to be updated every timethere was a change in personnel.

Job Function: The job function is one ortwo sentences which describes theoverall purpose of the job.

Specific Duties and Responsibilities:The specific duties and responsibilities isa list of those tasks for which theemergency program manager isresponsible. The list should be asspecific as possible, so that the dutiescannot be misinterpreted. There should


Unit 7-5

be no question as to your specificresponsibility.

Qualifications: What previousexperience or training should a personhave before he or she can become anemergency program manager? In manycases, the emergency program managermay be appointed with the understandingthat the qualifications for the job will bemet within a specific time frame.

A job description is extremely important.You cannot function effectively withoutone. Every major company in the UnitedStates has job descriptions for thevarious positions within the company.Emergency management is no different.A clear definition of the function, duties,and responsibilities of the emergencyprogram manager. is essential if yourcommunity is to have an effectiveemergency management program. Aclear job description will eliminate manyof the questions which may arise in anemergency such as "I didn't know I wassupposed to do that" or "I thought thatwas the fire chief's job.,, With a jobdescription, you will know exactly whatyour job is.

In many communities, the emergencyprogram manager is not a full-timeposition. In fact, in some communities itmay even be a volunteer position-similarto a volunteer fireman. Regardless of thetype of position, full-time, part-time, orvolunteer, you should have a jobdescription.

The job description for the emergencyprogram manager may be part of the jobdescription of another job. For example,the local fire chief may also be theemergency program manager. If this isthe case, the duties of the fire chief, when

acting as the emergency programmanager, should be clearly spelled out.Ideally, there should be two separate jobdescriptions. In the job description of thefire chief there should be a statementwhich says that the fire chief also acts asthe emergency program manager. Thereshould then be a separate job descriptionfor the emergency program manager

THINGS TO DOGet a copy of your job description.Review it to see if it is adequate. Are yourduties clearly defined? If you do not havea job description, write one. Have yourjob description approved by yoursuperior.


Unit 7-6

JOB DESCRIPTION

CITY OF METROPOLIS

Job Title: City Emergency Manager

Reports to: City Executive

Positions Reporting to This Position:

Non-Emergency Emergency

Administrative Assistant Administrative AssistantCity Information OfficerSupt. of Public WorksEOC Operations OfficerEOC Communications OfficerOthers as Determined by the

Executive or by Law

Function

To manage the mitigation of, preparedness for, response to, and recovery from disasters ormajor emergencies which may occur within the City limits of Metropolis.

Specific Duties and Responsibilities

1. Identify and implement precautionary measures to mitigate against potential hazards.2. Prepare, maintain, and annually review a local emergency preparedness plan.3. Provide or arrange for training programs for local government departments and community

groups on emergency management.4. Act as a liaison with state and federal emergency management officials.5. Take command of the EOC in all emergency situations.6. Keep the City Executive informed of all potential emergency situations.7. Make provision for emergency information to be disseminated to the public.

Qualifications

Capable of communicating with and coordinating between city and private resources. Shouldhave completed or be prepared to complete the training programs prescribed by state andfederal authorities. Previous experience in planning, management, emergency operations ishelpful.

Figure 7-2: Emergency program manager job description.


Unit 7-7

StaffingDepending on the size of yourcommunity, you may have a staff or youmay be the entire emergencymanagement staff by yourself. The sizeof staff needed to carry out emergencyprogram management in the communitywill depend upon the size of yourjurisdiction, the financial resourcesavailable, and the community's pasthistory of emergencies

As an emergency program manager, youmay or may not have a paid staff. Ofcourse, a paid staff is preferable to avolunteer staff. Even if you serve thecommunity as an emergency programmanager on a volunteer basis, it ispossible to have a paid staff to assistyou. Let's look at various staffing levelsand see how they may apply to yoursituation.

Figure 7-3: In a small community, don't besurprised if you are the entire emergencymanagement staff.

Administrative Staff: The administrativestaff are those people who handle theroutine office work of emergencymanagement. You cannot (or at leastshould not) try to run an emergencymanagement office without some type ofadministrative help. A goodadministrative assistant handles paper-work effectively and efficiently. As reportsand data come in from the state andfederal emergency management offices,they should be filed or acted onappropriately. Every emergencymanagement office should haveadministrative support staff, if only on apart-time basis.

If you are the emergency programmanager in a large municipality, you mayhave your own secretary oradministrative assistant. If you are only apart-time emergency program manager,you may only have part-timeadministrative help. In many cases, theemergency program manager can sharea paid employee with anotherdepartment. Even if you are a volunteer,you should have some type ofadministrative help on a regular basis.Perhaps a secretary in the policedepartment or a member of your chiefexecutive's staff can serve a limited basisto at least make sure that the properbulletins and reports are forwarded toyou.

If funds are extremely limited, do notoverlook the possibility of usingvolunteers to help in the emergencymanagement off ice. As you learned in anearlier unit, senior citizens groups, localservice organizations, and youth groups


Unit 7-8

such as scouts make excellent helpers.Perhaps you can arrange some type ofduty roster whereby the emergencymanagement office is staffed for a fewhours every day by volunteers who helpwith the paperwork, especially keepingyour resource list up to date.

Most community groups have meetingson a regular weekly or monthly basis. Ifpossible, you may be able to set up aregular monthly meeting of volunteers inwhich a group gets together at theemergency management office. it issurprising how much work can beaccomplished by a group of volunteers.

THINGS TO DOReview your emergency managementoffice operation. Is the current staffingadequate? If not, consult your superior todetermine what can be done to providethe help you need. See what can be doneto get a paid member of your localgovernment’s staff to help with theadministrative work, if only on a part-timebasis.

It should be pointed out that for someemergency program managers, theemergency management office mayconsist of a mail box and a file cabinet.Don't get discouraged if your resourcesare extremely limited. If you are in a smallcommunity with little history of majoremergencies or disasters, a file cabinetand some place to collect your mail maybe all you need.

Figure 7-4: Emergency program managersseldom have plush carpeted offices.

However, limited administrativeresources should not keep you fromdoing a good job. With a littleresourcefulness, and planned use ofvolunteers, your emergency managementoffice can be run as effectively as if it hada full time paid staff.

Emergency Staff: The emergency staffare those people who are called torespond in an emergency situation. Fromthe standpoint of the emergency programmanager, this is the staff of the EOC.


Unit 7-9

THINGS TO DOThe basic emergency functions below were described in the Operations Planning Unit onpage 4-12. Check the emergency functions that should be represented in the EOC duringan emergency. Then, name the staff member assigned to be in the EOC by position title.This table will help you identify gaps or overlaps in functions and assignments.

Emergency Function In EOC Staff Assigned

Alerting, Warning & Communications

Public Information

Evacuation and Relocation

Emergency WelfareEmergency Medical Care

Fire and Rescue

Police

Radiological Management

Public Works/Utilities Restoration

Disaster Analysis and Assessment

Logistics

Direction and Control


Unit 7-10

Again, depending upon the localcommunity, your EOC may be staffedwith paid personnel or with volunteers. Ofprime importance, however, is that inyour emergency preparedness plan youhave a detailed plan for the staffing ofyour EOC. Earlier in this unit you learnedof the importance of your own jobdescription. The job descriptions of thosewho are to staff your emergencyoperations center during an emergencyare also important. Each of the keypositions within your EOC should have adescription of emergency responsibilities.

One of the prime jobs of youradministrative staff is to make sure thatthe EOC staff roster is kept up to date.

The EOC roster should be checked on aregular basis, at least twice a year, tomake sure the EOC will be fully staffed ifan emergency should occur.

How well you are able to manage youroffice, whether it is on a day- to-day basisor during an emergency, depends in parton whether you are adequately staffed.Part of your job as the emergencyprogram manager is to estimate whatyour staffing needs are or will be, andthen plan to attain that level of staffing.Of course, a lot will depend upon thebudget for your emergency managementoffice, which is the next topic in this unit.

Figure 7-5: Use your staff wisely.


Unit 7-11

How Well Have Your Learned?

SELF TEST REVIEW

Answer the following questions to test your knowledge of this first part of Unit 7 facts.Read each question carefully, then write in the answer that you think is correct. Answerscan be found on page 7-12.

1. List the five elements of a good job description.

2. Define the administrative staff and the emergency staff.ADMINISTRATIVE STAFF

EMERGENCY STAFF


Unit 7-12


1. Job title, job function, specific duties andresponsibilities, reporting line, qualifications........................................... 7-4 thru 7-6

2. ADMINISTRATIVE STAFF handles the routine officework of the emergency program. EMERGENCY STAFFresponds in an emergency, answers to the emergencyprogram manager, and staffs the EOC .................................................. 7-7 thru 7-10



Unit 7-13

Financial PlanningFinancial planning can be divided intothree categories: budgeting, accounting,and reporting. Financial planning is avital part of emergency management.Every emergency management office, nomatter how small, must have a budget.Even the emergency program managerwho is serving on a volunteer basisneeds some funds allocated toemergency management so that themanager can hold and attend meetings,seminars, and subscribe to neededpublications.

Budgeting

A BUDGET is an itemized summary ofprobable expenditures for a given periodof time. Budgets are usually prepared ona yearly basis. Developing an emergencymanagement budget is a simple,straightforward process. How much isyour emergency preparedness plan goingto cost to maintain it in a state ofreadiness? How much does it cost just tomaintain your emergency managementoffice?

Figure 7-6: Financial Planning.

The size of your budget will probablydepend upon the history of disasters inyour area, the past performance ofemergency program managers in your job(if there were any), the size of thecommunity, and the responsiveness oflocal government to commit funds whichmay or may not be used.

Look at the community's pastappropriations for emergencymanagement. What support has thecommunity given to emergencymanagement in the past? A look at thepast will give you a pretty good idea ofwhat to expect in the future, and whereyou need to focus attention.

Your budget is a financial plan for howmuch the community is going to spend foremergency management. It can bebroken down into three main sections.

THINGS TO DOGet a copy of your current emergencymanagement budget. Review itcarefully. Also, review past records todetermine how much aid, if any, hascome from state or federal sources forthe community's emergencymanagement office.


Unit 7-14

First, determine the cost of maintainingthe emergency management office on aday-to-day basis. What is your salary?How much do you spend for supplies ortravel? How much is your clerical oradministrative help paid? Perhaps youshare a clerk with another department.Perhaps you are shared with anotherdepartment. Your salaries should. beshared. also.

If you do not have an emergencymanagement budget, try to establish one.A separate emergency managementbudget shows the community'scommitment to an emergencymanagement program.

For example, if you are a sharedemployee with the fire department, makesure part of your salary appears in anemergency management budget. Thecost of maintaining any specializedequipment should also be a part of theemergency management budget. Forexample, budget some money for themaintenance of your warning system,communications equipment, or specialfacilities which you have. Even if youronly expense is a service contract on atypewriter, make sure it gets into thebudget as an emergency managementitem.

Often the emergency resources are notthe property of the emergency programmanager. Equipment is too expensiveand manpower too scarce to stockpile itfor a major emergency. As a result, inmost communities the equipment used inemergency management is used on aregular basis by some department in thelocal government. In other words, there isnot a stack of two-way radios in the EOCjust waiting for an emergency before theyare put to use.

Figure 7-7: Emergency program managersoften perform several duties for their localcommunity.

In much the same way, the emergencypersonnel of the community serve allyear round. Fire service personnelrespond to every blaze while you, asemergency program manager, are likelyto become involved only in major fireswhere people are evacuated, sheltered,or otherwise use many parts of theemergency service community.

Budgeting for these occasional uses ofother agency's equipment and manpowercan be done in a couple of ways.

In some communities, money is actuallyreserved as an EMERGENCYCONTINGENCY FUND to reimburse theother agency for use of equipment ormanpower. Most communities allow theactual funds to remain in the budget ofthe agency owning the resource.

The purpose, however, of having acategory in your budget for theemergency use of such resources is to


Unit 7-15

make ft easier for you to monitor andaccount for costs following anemergency. Cost accounting, as waspointed out in the Recovery unit, isessential for obtaining a federaldeclaration of disaster.

One point cannot be overemphasized. Ifthe community has an emergencymanagement program, ft should have anemergency management budget. Oftenthe budget for emergency managementgets appended to some otherdepartment, such as the fire or policedepartment, and is not carried by thecommunity as a separate expense. It isimportant that the local officials realizethat they should make a commitment toemergency management. One way to doso is to budget for emergencymanagement.

Often, elected officials are reluctant toincrease a community's budget. Makecertain that you do not give theimpression that this new budget itemmeans an increased government budget.Stress that you are looking for areallocation of existing budget items to aspecific emergency management budget.

The second part of budgeting requiresyou to review your needs as anemergency program manager. What newequipment, additional personnel, orsupplies are needed in order toeffectively and efficiently carry out theemergency preparedness plan?

Make a list of the new items you need.You should be able to break this list intotwo parts: the items needed by yourdepartment and the items needed byother departments. Since, in mostlocalities, each department must submitits own budget, you will have to supply

the various department heads with theinformation they need to add to theirbudget for emergency management.

The same holds true for the purchase ofnew equipment. Most new equipment willbe purchased for use by otherdepartments. However, as the emergencyprogram manager, you will probably berequired to help justify; the need for anynew expenditures. Don't expect to geteverything you ask for. But be able tojustify your anticipated needs as much aspossible.

Figure 7-8: Most emergencymanagement equipment is in use on aregular day-to-day basis.


Unit 7-16

Emergency Management Budget

-----Income-----

Expenses Federal State Local

Staff salaries

25.1 Fire Chief $7,500 $3,750 $3,750

50% Administrative $7,000 $3,500 $3,500 Clerk

Subtotal $14,500 $7,250 $7,250

Support Expenses

Office space $2,000 $2,000 allotment

Travel for $1,500 $750 $750 training

25% Fire Chief's $300 $300 vehicle maintenance

Supplies $200 $200

Subtotal $4,000 $750 $3,250

TOTAL $I8,500 $7,250 $750 $10,500

Figure 7-9: Simple emergency management budget.

Third, you must estimate the amount offunding needed for anticipatedemergency operations. This is by far themost difficult to do, because you cannotplan for costs incurred in disasters. Youronly real guidelines are how much wasspent in the past, what types ofemergencies occurred in the past, andany new circumstances which may resultin situations which could not happenbefore. For example, was a nuclearpower plant put into operation recentlywhich was not a previous hazard source?Your hazard analysis will be important indeciding whether you have budgetedadequately for all types of emergencies.

A very simple emergency managementbudget may look like Figure 7-9. Alwaysbe prepared to justify each of the variousbudget items. Also, be ready to help theother department managers justify thesections of their budgets which arerelated to emergency management.

In preparing the budget, make sure youtalk to someone in authority to find outthe proper format. Your budget should beconsistent with those submitted by otherdepartments. Also, in preparing thebudget, find out what state or federalfunds are available. Under some federal


Unit 7-17

programs, matching funds are availablefrom the federal government. Often, alocal jurisdiction need only support partof a program when they get federalfunding.

A budget is not necessarily all numbers.Depending upon local government'sprocedures, you may be required tosubmit a narrative to go along with thebudget. A NARRATIVE is a writtendescription of what the money is to beused for. For example, the budget mayjust show a line item for salaries, and theamount The narrative would state suchthings as one half-time clerk and thesalary of the emergency manager.

Funding Expectations

Don't expect to get everything you askfor, especially in the area of newequipment or facilities. Local governmentofficials are, of course, responsible to thecitizens of the community. Increasedspending means increased taxes. Youmay have difficulty getting substantialadditional funds over previousappropriations. In most communities, youprobably will not be able to get anyfunding for anticipated emergencyoperations. Most communities havecontingency plans to divert money fromone department's budget to another ifneeded. Some of the affecteddepartments may have to slightly reduceservices as a result, but at least thecommunity does not have to increasetaxes for an anticipated expense whichmay not occur.

Whatever you do, do not getdiscouraged. It may be a slow buildingprocess on a yearly basis before you getthe funding you feel you need. This is

especially true if the local governmentofficials are not confirmed to expandingthe emergency management program orare currently opposed to raising newrevenue to support it. Therefore, makesure you have a good argument for thefunds you request. Also, make your jobeasier by working with other agencychiefs and gaining their support for theemergency management program.

Accounting and Reporting

ACCOUNTING is another financial termwhich refers to the keeping of financialrecords. The budget is a list ofanticipated expenses for a given period.Accounting is the procedure by which theactual expenditures are recorded. Insome cases, you may be required toallocate your budgeted expenses bymonth for the year. Then, by looking atthe accounting records, the amountactually spent, you can tell if yourdepartment is running over youranticipated budget or not.

In some cases, you may be accountablefor the money spent. In other words, youmay have to sign some type of documentfor the approval of various budgeteditems. This could be anything from thesigning of a purchase order for a new filecabinet to a travel voucher to attend anemergency management seminar.

Accounting procedures are likely to bewell established in your jurisdiction. Theoffice of financial management or thecomptroller usually will be able to provideyou with the proper forms andprocedures.


Unit 7-18

REPORTING consists of making aperiodic presentation of your budget andaccounts to superiors or other authoritieswith oversight responsibility for yourprogram. This is a useful process, inaddition to one usually required by yourjurisdiction. One way to look at thefinancial report is to see it as a way tosummarize your year. If, in keeping yourfinancial records, you also make note ofwhat you were doing when you spentmoney, you will have available a detailedlist of the training courses taken by youor your staff, the speeches you made,and other activities andaccomplishments.

Reporting then, not only is part of yourmanagement responsibility, but it can beused as part of your overall method forkeeping track of the development of youremergency management program.

Finally, the reporting requirement givesyou one more opportunity to make thecase for improved emergencymanagement. Don't shy away frombudget reports to your elected officials.Seize the opportunity to make newfriends for your program through personalpresentations.

The actual reporting procedures for yourjurisdiction are likely to be standardizedand particular to the jurisdiction. You maybe called upon to make only annualreports, or they may be made morefrequently. Check with the jurisdiction'sadministrative officer for those details.And remember, turn the reporting burdeninto an opportunity to promote youremergency management program.


Unit 7-19


SELF TEST REVIEW

Answer the following questions to test your knowledge of this section. Read each questioncarefully, then write in the. answer that you think is correct. Answers can be found onpage 7-20.

1. Identify and define the three categories of financial planning.

(1)

(2 )

(3 )

2. Define an emergency contingency fund.


Unit 7-20


1. (1) Budgeting-itemized summary of probableexpenditures for a period of time .......................................................................7-13

(2) Accounting - Keeping of financial records....................................................7-17

(3) Reporting - Presentation of financial records ina standardized format periodically to superiorsor authorities......................................................................................................7-17

2. An emergency contingency fund is a reserve used by a jurisdictionto reimburse agencies for the use of equipment or manpower..........................7-14



Unit 7-21

TrainingAs an emergency program manager, yourjob covers several broad areas ofresponsibility including efforts to mitigatedisasters, plan preparedness, andcoordinate response and recovery. Toadequately handle all these tasks, youneed a variety of skills that can be gainedthrough training available from municipal,county, state, and federal governmentprograms plus many organizations in theprivate sector. Although you may notbecome an expert in everything, youneed to take advantage of all the trainingopportunities you can to become a betteremergency program manager. Moreover,you should convey as much of yourknowledge as possible to your own staffso that they will be better prepared intime of emergency or disaster. Thus, yourrole in training is to both learn and teach.

State training programs often seem themost accessible to emergency programmanagers. Below, you will see that notonly do states offer training, but also thefederal government and many countiesand municipalities.

State Programs

Most states have training andeducational programs for emergencyprogram managers which are coordinatedby a state training officer. Classroominstruction is often provided in the areasof emergency management,preparedness planning, emergencyoperations, and career development.Often, participation in these programs isnot limited to the emergency program

Figure 7-10: Training is essential to effective emergency management.


Unit 7-22

manager, but is open to all people whohold emergency operations positions.You can select programs which may be ofbenefit to specific people on youroperations staff, and arrange for them toattend.

The state training officer is a valuableresource, even if you are unable toparticipate in any of the programs offeredby your state. The training officer canserve as an advisor, helping you defineyour training needs or suggesting othertraining resources which may be of valueto you.

THINGS TO DOContact your state training officer and findout what training programs your stateoffers, when they are given and who canattend.

Some states have EMERGENCYOPERATIONS SIMULATION TRAINING.People from the state training office comeinto your community and conduct asimulation exercise. In other words, theystage a mock emergency to test yourpreparedness plan. In the process, allthose who participate in the simulationlearn from their experience. You learnwhere the plan was properly executedand those parts of the plan which werenot carried out properly. Most of all, youlearn if the plan was able to meet thedemands of the simulated emergency It isbetter to find out where the plan needsimprovement in a simulation than to findout in an actual emergency. You mayalso want to take a course that will teachyou how to conduct your own exercises.

THINGS TO DOArrange a meeting with the state trainingofficer. Find out if the state conductssimulation exercises.

Federal Opportunities

FEMA provides a variety of opportunitiesfor continuing education as-part of itsPROFESSIONAL TRAINING PROGRAM.The subjects of FEMA training are asvaried as the emergency managementprofession. They range from managingand supervising of training to workingwith public officials. They improve thepersonal effectiveness and professionalstature of emergency program managers.As an, emergency program manager, youare urged to take advantage of as manyof them as you can. The methods ofinstruction include home study coursessuch as this one and classroominstruction for the more detailed study ofemergency management

The FEMA regional training andeducation officer can tell you whatprograms are available for you and youremergency management and operationsstaff. Let's look at a few of them that maybe of interest to you.

The first home study course is the oneyou are holding, The EmergencyProgram manager: An Orientation to. thePosition. As you have seen, it isdesigned to provide the basics of the jobfor the emergency program manager.

Another home study course, EmergencyManagement, U.S.A., gives much thesame orientation to the public.


Unit 7-23

This course provides a good overview ofmany topics with which both the publicand the emergency program managershould be familiar.

One other independent study course thatshould be of interest in your fixed nuclearfacility preparedness is called IS-3,Radiological Emergency Management. Itssubjects include fallout effects, exposuremonitoring, and protective anddecontamination measures.

Residential and field training provided bythe Federal Emergency ManagementAgency emphasize performance basedexercises, highlighted by the IntegratedEmergency Management Course joiningpersonnel from all departments andagencies in a community to practicepolicy-making, planning, and emergencyoperations.

The Integrated Emergency ManagementCourse's subject areas include thedefinition of emergency management, therelationship between military defenseplanning and emergency managementplanning, shelters, natural disasters,warning, emergency operations, supportprograms, and governmentalresponsibilities for emergencymanagement.

In addition to the Integrated EmergencyManagement Course, major topicgroupings of the FEMA Training Programinclude. sessions in three areas.

1.) The Emergency ManagementProcess Curriculum providestraining that cuts across subjectareas and hazards to providepersonnel with the managementand problem-solving skills neededto effectively lead a community in

an emergency. Included is aprofessional development seriesfor emergency program managers,as well as upper-level workshopsand seminars dealing with a broadspectrum of. contemporaryemergency management problemsand issues. The audience forthese courses, which build heavilyon training at the State andRegional levels, includes theemergency program manager;emergency operations managersin law enforcement, fire, publicworks, and emergency medical;and public officials in localgovernment to whom the lawsentrust the responsibility forprotection of the lives and propertyof citizens.

2.) The Natural Hazards Curriculumexplores areas of natural hazardswhich focus on planning, response,recovery, and mitigation. Somecourses focus on fundamentals,exploring the characteristics andcauses of the major natural hazardswhile others deal with highlyspecialized training and exercisesdesigned to test the participant andhis or her community in terms ofhazard identification, mitigation,response operations, recovery, andcommunity planning. Participants inthese courses range fromemergency program mangers;federal, state, and local personnelinvolved in all phases of naturalhazard programs; and specializedaudiences such as hazardmitigation teams.


Unit 7-24

3.) The Radiological andTechnological HazardsCurriculum deals withcontemporary problems associatedwith nuclear power plants, nuclearweapons accidents, and themanufacture, transport, and storageof nuclear and other hazardousmaterials. Also included amongthese courses is radiologicaldefense in a nuclear attack.Attendees at courses in thiscurriculum include federal, state,local, and nuclear power plantradiological health physicspersonnel; RADEF officers; andutilities staff and those involved inoff-site nuclear plant emergencyplanning.

Advanced training in each of thesecurriculum areas is offered by FEMA tograduates of these programs on topics ofcurrent interest. Generally, theparticipants must complete assignedadvanced reading or research to be ableto discuss the topic during the seminar.

FEMA has a National EmergencyTraining Center in Emmitsburg, Marylandthat offers courses in comprehensiveemergency management through a well-planned and coordinated schedule ofactivities at the Emergency ManagementInstitute. Also located at the NationalEmergency Training Center is theNational Fire Academy. Together, theseinstitutions provide comprehensive andintegrated training to improve thepersonal competence and professionalstanding of the emergency programmanager.

No tuition is charged for any of the EM Iclasses at the training center, and allinstructional materials are provided.

FEMA also provides partialreimbursement for the expenses oftraining at Emmitsburg. Application forattendance or more information about thetraining center may be obtained fromstate emergency management offices.

THINGS TO DOContact your county or state trainingoffice and determine which federaltraining programs are available andappropriate to you.

Local Training Opportunities

Often there are many local trainingopportunities for the emergency programmanager. For example, to improve theemergency response phase of your job,you can actively participate in or observethe training programs or exercises of yourlocal fire or police department.

From the management standpoint, checkthe classes offered by your localcommunity college or the adult eveningclasses at a local high school.

Often the courses on basic managementprinciples offered by these institutionsare very good, and the principles learnedcan be applied directly to your job. Checkthe classes offered on budgeting andfinancial planning as well.

Don't overlook the opportunities fortraining from service agencies such asthe Red Cross. Often their programs infirst aid, cardiopulmonary resuscitation(CPR), health care, and life saving maybe important, especially if you are notknowledgeable in these areas.

Finally, there are often trainingopportunities offered in the private sector


Unit 7-25

by various companies which anemergency program manager canparticipate in. For example, a localchemical plant may have "in-house"training programs in hazardous materialsmanagement. If you come acrosscompanies dealing with hazardousmaterials in your hazards analysis, checkto see if they have training programs fortheir staff. Ask to be notified when theyoccur and if you can participate. Mostcompanies would be more than happy tohave you as a participant or observer.

The Emergency Program Manager AsInstructor

Training and education is more than justeducating you, the emergency programmanager. Emergency program managersare teachers. The entire local communityis in need of the training and educationthat the emergency program managercan provide.

The knowledge you gain from everyseminar you attend, every visit from thestate emergency management office,every training exercise must be passedon to elected officials, administrativestaff, and emergency operations staff.The passing on of this knowledge is partof your education function as anemergency program manager. You mustkeep your superiors as well as yoursubordinates and co-workers informed.

Also, as you learned earlier, you mustalso keep the public informed.

How you work with the independent studycourse, IS-2, Emergency ManagementU.S.A., is a good example of youreducation role.

First, you need to PROMOTE to thepublic the idea that the course would beuseful to them.

Second, you may need to INSTRUCTmembers of the public to help them getthrough the course both by providinginformation and incentives for study.Third, once the public becomes educatedabout the basics of emergencymanagement, you need to be acontinuing RESOURCE to them forfurther information and training.

Let's look at how your function as aneducator can be carried out.

Individual Instruction: individualinstruction is on a one-on-one basiswhere you sit down with one trainee at atime to teach a particular skill. This maysound very formal, and it is if you areshowing a subordinate how a specificpiece of equipment works or how yourwarning system is activated. However,showing a senior citizen volunteer howyour filing system works is also individualinstruction.

Figure 7-11: You are a trainer!


Unit 7-26

Meetings: Many meetings are a form ofinstruction. Any time a group getstogether to discuss a problem, learningtakes place. As you can see, your job asan emergency program manager mayinvolve a lot of instruction, but in a veryinformal way. There may be times whenyou will actually be teaching youraudience something you have learned atone of the seminars you have attended.

Prepackaged Programs: Oftenvideotapes, movies or slide presentationsare available on various topics that mightbe of interest to those associated withyour emergency management program.FEMA publishes a catalogue of motionpictures useful for community education.The American Red Cross, the U.S.Geological Survey and the Department ofAgriculture also provide a variety ofuseful training and education films.

Seminars: A seminar is a special kind ofmeeting or group instruction in whichexperts or key individuals are used asresource people to inform the group. Witha seminar, your primary function is toorganize the seminar and have expertscarry on the instruction for you.

Exercises: You learned earlier that thepreparedness plan should be tested andalso that many state offices will help youin carrying out a simulated emergency.These simulations whether a "table top"exercise or one which is actually actedout, are learn experiences developed byyou for a variety of participants.

As you can see, your job as an educatoror trainer does not mean that you arestanding in front of a class and giving alecture. In your normal day-to-day routineas an emergency program manager, youwill often-be educating someone aboutemergency management or training themto perform some skill.


Unit 7-27

Toward the FutureYou began this course as a TRAINEE.You have ended it by finding out that oneof your important roles as an emergencyprogram manger is being a TRAINER.You have come full circle as anemergency manager.

That quite well sums up the opportunitythat awaits the emergency programmanager. With every bit of knowledgeand experience you gain others benefit.You are, in the finest sense of thephrase, a public servant.

This course has taken you from adefinition of your job through the broadpanorama of the four phases ofemergency management to the local-state-federal-private partnership. Youhave learned the importance of workingwith agencies and organizations to keepthem alert to ways to mitigate futuredisasters. You've learned about hazardanalysis, preparedness planning, and

resource inventories. You have focusedon the EOC as the center of response,and damage assessment as thebeginning of recovery. You have learnedthat the emergency program manager'sjob doesn't end when the crisis is over. Itis a continuing job, looking for mitigationopportunities even as the communitymakes its redevelopment decisions.

In long-term recovery after disaster, therole of the emergency program mangeragain comes full circle. The traineebecame the trainer. The preparer willbecome the responder, and the recovererwill become the mitigator. Throughout itall -- different disasters, different phases,different partners -- you, the emergencyprogram manger, are there preparingyour neighbors for the unexpected,serving the community.


Unit 7-28


SELF TEST REVIEW

Answer the following questions to test your knowledge of this last section of Unit 7.Read each question carefully, then write in the answer that you think is correct.Answers can be found on page 7-29.

1. Where can you find emergency training programs?

2. List five methods you may use to fulfill your role as an emergency managementeducator.


Unit 7-29


1. You can find emergency training programs in municipal,county, state, and federal government agencies and inmany organizations in the private business and industry sector ..... 7-21 thru 7-25

2. Individual instructionMeetingsPrepackaged programsSeminarsExercises .........................................................................................................7-25



Final Exam-1

FINAL EXAMINATIONFOR THE

EMERGENCY PROGRAM MANAGER


Final Exam-2

How to Take the Final ExaminationYou have now completed theinstructional part of The EmergencyProgram Manager: An Orientation tothe Position. You, should be ready totake the final examination. You shouldalso be better prepared for emergenciesand disasters.

The following final examination is a testto find out how much you have learnedabout emergency management from thiscourse.

A Final Examination Answer Sheet isincluded at the end of this booklet. Fill inyour name, address, social securitynumber, and organization affiliation. Markyour answers in the appropriate spaces.Use a soft lead (#2) pencil.

While taking the test, read each questioncarefully and select the answer that youthink is correct after reading all thepossible choices. Complete all of thequestions. You may refer to the coursematerials to help you answer thequestions.

When you have answered all thequestions, prepare the answer sheet asdirected and drop ft in the mail. Youranswers will be scored and the resultsreturned to you as quickly as possible.

There are forty-seven (47) questions onthe final examination. The test shouldtake no more than 60 minutes. Find aquiet spot where you will not beinterrupted during this time.

TURN THE PAGE AND BEGIN


Final Exam-3

Final ExaminationInstructions—Carefully read each question and all of the possible answers before youmark your answer sheet. There is only one correct answer for each test item. Mark all ofyour answers on the Final Exam Answer Sheet by properly filling in the appropriate space.

1. Comprehensive Emergency Management includes which of the following?

a. a close working relationship among all levels of government and the privatesector

b. mitigation, preparedness, response and recoveryc. natural disasters and technological disastersd. all of the above

2. Planning how to respond to a disaster and working to increase resources foreffective response describes which phase of emergency management?

a. preparednessb. responsec. short-term recoveryd. comprehensive emergency management

3. Which of the following best defines the term "emergency".?

a. the first phase of comprehensive disaster planningb. any event that is too large to be handled by any one emergency response

component (e.g., fire, police, paramedic)c. any event which damages or threatens to damage people or propertyd. a small-scale incident that endangers the lives and/or property of fewer than

a dozen persons

4. One of the basic premises of emergency management in the United States is that itconstitutes a partnership among

a. the federal, state, and local governments and the private sector.b. emergency response organizations.c. the executive, legislative, and judicial branches of government.d. the elected officials and career emergency personnel of the country.


Final Exam-4

5. In carrying out its role in civil defense, local government is responsible for

a. translating accumulated years of both management and front-lineexperience to the job of emergency program manager.b. developing capabilities in natural or technological disasters that contribute to

response in case of nuclear war.c. coordinating and utilizing both fire and police in a national emergency.d. using state and federal assistance in disaster preparedness.

6. Which of the following is a basic problem for many local emergency managementprograms?

a. inadequate police and fire servicesb. excessive control by state emergency program managersc. regulations of the federal governmentd. lack of community support

7. The most important information about the emergency plan that citizens shouldknow is

a. identification of the hazards to which they are vulnerable.b. details on what they should do in an emergency.c. the persons to contact for details about the plan.d. a list of nearby evacuation centers.

8. Which hazards should have priority in your mitigation efforts and preparednessplanning?

a. those identified as "worse threats"b. hazards associated with nuclear energy facilitiesc. all technological hazardsd. the hazards that occur most frequently

9. One vital role of the emergency program manager during the emergency recoveryphase is liaison with state and federal assistance programs. What is the other?

a. drafting control ordinancesb. supervising reconstructionc. seeking ways to reduce future vulnerabilityd. serving as general contractor for construction


Final Exam-5

10. The purpose of recovery planning is to

a. fulfill a state requirement.b. spell out major steps for managing recovery.c. fulfill a federal planning requirement.d. increase eligibility for disaster relief.

11. What is one of the first actions necessary to make your EOC operational?

a. survey the damaged area.b. request permission from your state director.c. alert the EOC personnel.d. request maps for your local community.

12. When the federal government issues a Presidential Declaration of Emergency,

a. specific assistance will be provided by the federal government to protect lives, property, health, safety, and recovery of the damaged area.

b. local requests for federal assistance must be channeled through the office ofthe President.

c. all resources of the federal government for assistance are freed.d. federal assistance funds are not released.

13. Your EOC must have what vital requirement before it can qualify as fully equippedby federal government standards?

a. high frequency radio capabilityb. an automatic radiological monitoring systemc. adequate fallout protection from a nuclear detonationd. a medical aid station for government officials

14. Ensuring the legality of the local emergency management program is a function of

a. the emergency program management office.b. county or municipality emergency management laws.c. the judicial branch of the federal government.d. any incorporated insurance company currently operating in the United

States.


Final Exam-6

15. Of the following, who can request the federal aid that accompanies a PresidentialDeclaration of Disaster?

a. members of the United States Congressb. emergency program managersc. local jurisdictions in which the particular disaster occurredd. state governors

16. Which is an important factor to your success in coordinating local governmentagencies during an emergency?

a. knowing the boundaries of coordinationb. having authority to direct department headsc. getting all department heads to refer decisions to youd. knowing department personnel by name

17. Which phase of comprehensive emergency management involves caring for peopleafter an emergency and assessing damage?

a. mitigationb. preparednessc. responsed. recovery

18. Which types of federal recovery assistance usually requires some type of.matching funds from the local community?

a. technical assistanceb. contractc. grantd. loan guarantee

19. Of the following, who is responsible for providing liaison between all three levels ofgovernment when federal assistance is available for recovery?

a. local emergency program managerb. EOC directorc. state coordination officerd. federal coordination officer


Final Exam-7

20. In the comprehensive emergency management cycle, mitigation is considered to bethe

a. first phase.b. first and part of the last phase.c. second phase.d. the last phase.

21. As a new emergency program manger, what should be the first action to determineyour job tasks and obligations?

a. confer with the local chiefs of police and fire.b. review the state emergency management law.c. read Federal Emergency Management Agency regulations.d. study the local law or ordinance that provides for your job.

22. A good emergency preparedness plan

a. has certain important sections written in a code that only the emergency program manager can decipher.

b. clearly defines the relationship among the various functions and determines the responsibility of who is to do what.

c. meets the approval of the highest official of the municipality.d. makes substantial use of technical terminology.

23. In order to make use of emergency resources you must

a. know what and where they are and how to obtain their use.b. have a current, valid government identification card.c. look inside your own jurisdiction.d. obtain a written request from the highest elected official in your jurisdiction

(e.g., mayor or county executive).

24. Which section of the basic emergency preparedness plan addresses managementof resources and general support requirements?

a. Organization and Assignment of Responsibilitiesb. Direction and Controlc. Plan Development and Maintenanced. Administration and Logistics


Final Exam-8

25. Which section of the preparedness plan describes the roles and relationships ofgovernment agencies and how they interact with each other and the private sector?

a. Organization and Assignment of Responsibilitiesb. Concept of Operationsc. Continuity of Governmentd. Authorities and Reference

26. In the emergency management field, budgets are usually prepared.

a. on a yearly basis.b. on a month-to-month basis, as pre-planning expenditures in advance is

virtually impossible.c. following each major emergency or disaster.d. at the state level for each jurisdiction.

27. As emergency program manager, you should strive to

a. obtain written confirmation that department heads will relinquish control of their personnel to you in time of emergency.

b. have department heads refer important decisions to you.c. be on a first-name basis with the mayor, governor, and other important

elected officials.d. be viewed as the expert in emergency management for the other

government departments.

28. The ten core functions of a comprehensive emergency program manager includehazard analysis and planning, maintaining the emergency partnership, emergencyresponse, coordination, legal authority, information, administration, training,changing and improving, and

a. federal declaration of disaster.b. hazard mitigation.c. issuance of awards.d. fund raising.

29. The purpose of a vulnerability analysis is to

a. document real damages to justify a request for assistance.b. determine the resources needed to prepare for a disaster.c. identify how people, property and structures may be damaged by a hazard.d. assess which hazards can strike your jurisdiction.


Final Exam-9

30. In keeping your hazard analysis current, you are mainly concerned with

a. large-scale risk.b. technological hazards.c. natural hazards.d. keeping abreast of international political events and tensions.

31. The principal source for public information and education regarding emergencymanagement is

a. the public school system.b. the local chapter of the American Red Cross.c. the local news media.d. the emergency program manager.

32. The most common tool to help you mitigate emergencies is

a. your emergency preparedness plan.b. local laws and ordinances.c. the authority given to you by the chief executive.d. the apparatus belonging to your jurisdiction (e.g., fire trucks, rescue

vehicles).

33. Where should you include a detailed plan for the staffing of your EOC?

a. shelter management planb. administrative staffing planc. mobilization pland. emergency preparedness plan

34. What information about each person should be included in a preliminary inventoryof government officials?

a. position, name, phone number, addressb. position, name of secretary, phone number, agec. name, phone number, address, name of spoused. name, name of secretary, phone number, number of years on the job


Final Exam-10

35. Which section of the preparedness plan needs to be updated most often andtherefore should be formatted for easy changes?

a. Forewordb. Authorities and Referencesc. Basic Pland. Appendices

36. State emergency laws must always be

a. similar in intent to the laws of every other state it borders.b. approved in principle by your state emergency director.c. consistent with federal laws in order to qualify for federal aid.d. approved state-wide by a two-thirds majority of county emergency program

managers.

37. Of the following, which is a good example of mitigation?

a. conducting discussions with redevelopment officials to identify ways that recovery projects can reduce or eliminate future disaster damages

b. establishing immediate telephone contact with police, fire, rescue and medical units upon the onset of a large-scale emergency

c. responding promptly, efficiently and appropriately to the issuance of a tornado warning by the National Weather Service

d. during an evacuation, visiting emergency shelters to ensure that evacuees have been amply and courteously provided with whatever services they might require under with circumstances.

38. The purpose of the annexes to the basic plan is to

a. detail mutual aid pacts with neighboring jurisdictions.b. provide an auxiliary plan.c. provide a quick-reference index to the entire plan.d. detail and define operations.


Final Exam-11

39. Which of the following describes your role in training as a local emergency programmanager

a. to advise the local officials of training needs and to conduct exercisesb. to become fully qualified in your position by taking all the training courses

availablec. to take advantage of learning opportunities and provide learning

opportunities for local officials and the publicd. to develop courses for the state and regional training programs and torecruit students.

40. A legal agreement between two or more local jurisdictions to help each other incase of an emergency is called

a. a bilateral trade agreement.b. a nominal assistance pact.c. a mutual aid pact.d. an intralocal agreement.

41. What should you do before you add names or resources to a permanent privatecommunity resources inventory?

a. Obtain a security check on each person.b. Make personal contact to confirm resource availability.c. Make certain that you have a back-up for each new resource that you add.d. Check with the head of your local jurisdiction.

42. What is the most common reason for failure to win approval of a request for federaldisaster recovery assistance?

a. not enough public supportb. insufficient lobbying in Washington, D.C.c. absence of an emergency preparedness pland. lack of adequate documentation


Final Exam-12

43. What is meant by a federal government "loan guarantee"?

a. Local lending institutions guarantee to the federal government that they will make recovery loans available in specified amounts.

b. The federal government guarantees a jurisdiction that it will provide loans fordisaster recovery.

c. The federal government guarantees to local lending institutions that certain loans will be paid back.

d. Individuals applying to the federal government for disaster recovery loans must guarantee that they are able to pay them back.

44. Local ordinances provide for a "line of succession" in order to

a. assure continuity of leadership in the community in time of disaster.b. ensure the success of the emergency management program.c. establish a chain of command for all departments which would be activated

in time of emergency.d. delineate those who report to and act under the orders of the emergency

program manager when a state of emergency is declared.

45. The most effective method of testing your preparedness plan is to

a. solicit the honest evaluations of department heads and elected officials in your jurisdiction.

b. check its validity against the plans of jurisdictions of similar size and with similar hazards.

c. review it in a public forum.d. exercise your personnel and procedures.

46. When talking with reporters during an emergency, the best policy is to

a. provide them with human interest stories that will grab the public attention.b. be as factual as possible, and answer all questions to the best of yourability.c. give them all the factual information you have, even if the information hasnot been confirmed.d. consider what is likely to happen so that the public can be prepared.

47. The purpose of a hazard analysis is to

a. assess how people, property and structures could be damaged.b. isolate the real cause of a disaster.c. provide support for a request for disaster relief assistance.


Final Exam-13

d. determine which hazards can strike your jurisdiction.

THE EMERGENCY PROGRAM MANAGER - Baha'i Studies · 2012. 6. 11. · THE EMERGENCY PROGRAM MANAGER...

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