Unit 3 Introduction to Emergency Management for Fire Service. Basic Concepts and Principles of Emergency Management Student Manual
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1 Unit 3 Introduction to Emergency Management for Fire Service Basic Concepts and Principles of Emergency Management Student Manual
2 Introduction to Emergency Management for Fire Service Unit 3 Basic Concepts and Principles of Emergency Management Objectives 1. Define emergency management as a term and an occupation. 2. Describe the meaning of Bottom-Up emergency management. 3. Discuss the Intergovernmental and Partnership nature of U.S. emergency management. 4. Describe the concept of CEM or All Hazards emergency management. 5. Describe and discuss what is meant by the Integrated Emergency Management System. 6. Describe the Four Phases that comprise the disaster life cycle. 7. Discuss the problems inherent in emergency management, other than in times of disaster. I. Common Terms Used in Emergency Management A. Business Continuity B. Business Resumption Planning C. Civil Defense D. Civil Emergency Preparedness E. Contingency Planning F. Crisis or Consequence Management G. Disaster Services or Management H. Emergency Services I. Hazard Management 2 Student Manual 3 Mu Extension
3 J. Recovery Planning K. Risk Management L. Civil defense in the United States is often associated with nuclear attack or national security preparedness. As such it was viewed as something one did not want to think about it was not very popular, even before the end of the Cold War. M. This term can still be found in the US, though, and is often encountered abroad. For example the United Nations not infrequently uses this terminology and defines civil defense as: The system of measures, usually run by a government agency, to protect the civilian population in wartime, to respond to disasters, and to prevent and mitigate the consequences of major emergencies in peacetime (UN 1992, 17). N. Civil emergency preparedness is similarly associated with nuclear attack or national security concerns thus the emphasis on civil preparedness as opposed to military oriented defense preparedness. O. Business and industry sectors tend to prefer the use of such terms as business continuity planning, crisis or consequence management, contingency planning, or business resumption or recovery planning to the term emergency management which is more often found in the public sector. 1. These terms seem to focus primarily on preparedness, response and recovery and less on prevention and mitigation. 2. In this context you might want to point our Allinson s critique of crisis management, found in his book Global Disasters: Inquiries Into Management Ethics. Allinson writes that: Crisis management implies a concern with dealing with on on-going event or disaster response. A focus upon disaster response could turn into a preoccupation with skills based training often at the expense of knowledge based activities, such as conducting a hazards, vulnerability and risk assessment. 3. A focus on disaster response or crisis management will also tend to translate into too little attention paid to mitigation, preparedness or recovery. Fire and Rescue Training Institute Student Manual 3 3
4 P. Contingency planning, on the other hand implies a focus on before-the-event planning planning for action - looking at all the what ifs. Priority attention paid to preparedness can turn into a preoccupation with planning and problem solving at the expense of trying to understand how to lower the vulnerability of high risk populations within a jurisdiction. Q. Business resumption planning implies a focus on planning today to get a business or industrial operation going again AFTER it has been shut down by a disaster. It does not seem to take fully into account actions which can be taken today to mitigate against a hazard threat which would keep the business or industry from being forced to suspend operations in the first place. R. Disaster management or services seems to imply a focus on the response to something that has already happened a response orientation. S. Emergency services is a term that is identified in this country with existing emergency offices such as police, fire and ambulance. Emergency Management offices with such names report that they frequently receive 911 calls from the public, looking for an ambulance, or someone to put out a fire. T. Hazard management is a very infrequently used term in this country as applied to the names of governmental offices it is found much more frequently in the disaster research literature. A possible shortcoming with this term could be a sense that an organization s focus was only on dealing with a threat prior to its actualization becoming then a disaster that a different set of folks would then become involved with say emergency services personnel. As Bolin and Stanford note in the handout, Hazard management as a technically specialized field necessarily avoids the broader environmental and social contexts of disasters (Bolin with Stanford 1998, 219). U. Risk management is a term that has only recently entered the field of hazards, disasters and society s organized response to them. The term risk management has typically been applied to private sector efforts to manage or limit injuries and losses. As the handout notes, it has in the past dealt with the indexing of critical operations, assessing risk exposure for those operations designated as vital or high, and then developing a mitigation plan which outlines the who, what, when and how of preventive or corrective actions. II. What is emergency management? A FEMA definition of emergency management. Emergency Management: Organized analysis, planning, decision-making, and assignment of available resources to mitigate (lessen the effect of or prevent), prepare 4 Student Manual 3 Mu Extension
5 for, respond to, and recover from the effects of all hazards. The goal of emergency management is to save lives, prevent injuries, and protect property and the environment if an emergency occurs. (FEMA, Introduction to Emergency Management Course, 1995, p. 1-6.) 1. Do you agree that the primary goal of emergency management, as this overhead seems to indicate, is to save lives, prevent injuries, and protect property and the environment if an emergency occurs? 2. What about the more recent U.S. movement towards building disaster resilient communities within the context of sustainable development? B. Principle # 1: Bottom-up Approach 1. The first thing to say about U.S. emergency management is that in many aspects it employs a bottom-up approach as opposed to one that is top-down as in some other countries. 2. In essence, this means that we rely heavily on building LOCAL emergency management capabilities as opposed to a reliance on a national or centralized emergency management corps. C. There are four aspects of the U.S. bottom-up approach to emergency management that deserve comment: 1. Decentralization of responsibilities 2. Establishment of State, county and local political jurisdiction emergency management 3. Reliance on existing emergency services personnel 4. Networking with broad segment of community D. Decentralization of Responsibilities: 1. Some countries manage their equivalent of U.S. emergency management from the national level. 2. National/federal personnel do the lion s share of planning and response to non-routine emergencies and disasters. Fire and Rescue Training Institute Student Manual 3 5
6 3. Therein can be found line authority as in an organization chart or military structure the top level passes orders and directions down to the bottom there is a command relationship. 4. Not so in the U.S. While federal organizations are very much involved in hazards, disasters and emergency management, there is essentially very little command authority wherein the federal government orders States to perform emergency management functions. Instead, the federal government relies, for the most part, on persuasion and on incentives and disincentives. 5. An incentive would be strings attached to funding levying requirements or obligations of some sort that accompany federal monies. 6. An example of a disincentive would be the withholding of a license to bring a nuclear power plant on-line if federally required population protection measures were not in place such as putting a warning system in place and developing emergency operations plans. 7. There are many advantages of a system that is more bottom-up than top-down. 8. There are also disadvantages. As Lindell and Perry (1992, 2-3) write: Most environmental scientists and emergency services professionals would probably agree that an organized emergency management system does not exist in the United States. An organized system means a well-defined and differentiated structure of components with mutually agreed on roles interacting over time in a coordinated manner to achieve common goals. Much of what now exists remains both fragmented and incomplete. 9. In addition, it should be noted that ours is not completely a bottom-up system. Much of the way emergency management has evolved and is accomplished in this country can be explained in terms of national legislation and executive direction As was discussed in the first unit. E. Nation-Wide Emergency Management Cadre: 1. A second tenet of the Bottoms-Up approach to U.S. emergency management is the existence of a nation-wide cadre of State and local emergency management personnel. 2. Every State government has an element that performs emergency management functions usually an Office of Emergency Management, though other nomenclature is also used. 6 Student Manual 3 Mu Extension
7 3. Most of the more than 3000 plus counties in the country have Offices of Emergency Management. 4. Most cities have an Office of Emergency Management. 5. Many towns, villages, townships and other incorporated political jurisdictions also have an Office of Emergency Management. 6. Depending on the size, economic viability and hazards, emergency magagers my be part-time employees or volunteers. F. Reliance on Existing Emergency Services Personnel: 1. A third tenet of the Bottom-Up approach to emergency management in the US is a reliance on existing emergency services personnel. a. Rather than develop a local, State, or Federal Emergency Management Corps or Service to respond to disasters, as some countries have done, the U.S. relies on existing emergencies services personnel such as: i. Fire ii. Police iii. Emergency Medical Services iv. Public Works v. Public Health vi. Transportation 2. Thus a local office of emergency management generally would not have its own disaster response personnel. 3. While some local offices do have volunteer auxiliary personnel say to assist the police or Department of Public Works in putting barricades across flooded roads primary disaster response responsibility resides with existing emergency services and other personnel. Fire and Rescue Training Institute Student Manual 3 7
8 4. Similarly, at the national level, there is not a federal disaster response force that comes in, even for Presidentially-declared disasters, and takes over and manages operations. Generally it is the case that when federal personnel participate in disaster response it is in support of State and local activities. G. Community-Wide Networking: 1. A fourth and final tenet of the Bottoms-Up approach to US emergency management is the importance of community-wide networking getting out from behind a desk and into the community one serves to meet and work with others. 2. For effective emergency management to function, a broad array of organizations and personnel in the public and private sectors need to be involved in the full-range of emergency management measures. Such as: a. Local government personnel b. Business and industry c. Volunteer and Community Based Organizations d. Religious Organizations e. The Media f. Academia g. Citizenry 3. Community-wide networking cannot be overestimated. A great deal of bad experience has taught us that paper plans and hollow programs do not work. Without community and departmental support efforts fall apart in the face of real disasters. H. Principle #2 Intergovernmental Partnerships 1. A second principle of U.S. emergency management is the intergovernmental and partnership nature of its practice. a. Locals not left to fend for themselves b. Joint State/local and Federal responsibility c. Each level has contributions to make 8 Student Manual 3 Mu Extension
9 d. Importance of improvisation and Flexibility e. Teamwork 2. Emergency management is a joint local/state and Federal responsibility. In the words of one FEMA document: The burden of disaster management, and the resources for it, require a close working partnership among all levels of government (Federal, regional, state, county, and local) and the private sector (business and industry, voluntary organizations, and the general public) (FEMA 1993 (Sep), I-5). 3. The contribution of each level can be summarized as follows: a. Federal legal authorities, (legislation, regulations and executive orders) fiscal and material resources, research, technical information and services, specialized personnel. b. State legal authorities, emergency management offices (every state has one) administrative skills, specialized personnel, conduit between local and federal levels. c. Local direct motivation and involvement, knowledge of the situation people and environment personnel and resources, first responders. 4. State agencies, like their local counterparts, are expected to be organized effectively, and should possess well-maintained emergency plans, facilities, and equipment. 5. To become and remain eligible for Federal financial assistance, each State must manage a State emergency management program that compliments and promotes local emergency management. 6. Many of these agencies at the state level are organizations within larger departments like: a. National Guard b. Public Safety c. State Police Fire and Rescue Training Institute Student Manual 3 9
10 7. Some common names are: a. State Emergency Management Agency b. Office of Emergency Services c. Division of Emergency Management/Services d. Bureau of Disaster Services e. Emergency Preparedness Division I. Principle #3: All Hazards (Comprehensive) Emergency Management J. The third fundamental component of U.S. emergency management is referred to as All Hazards or Comprehensive Emergency Management. 1. Not that many years ago, government at all levels used to prepare for disaster using a hazards-specific approach an earthquake plan, a hazardous materials spill plan, a severe storm plan, etc. 2. Thus, if you walked into an Office of Emergency Management in a jurisdiction that was vulnerable to a number of hazards you would find a similar number of disaster plans, one for each hazard confronting that jurisdiction. 3. In addition, within the community you would likely find a number of various other disaster plans in other public and private sector organizations often not coordinated with others or perhaps even unknown to other disaster planners. 4. People came to the realization that there are a range of functions which cut across hazards boundaries. 5. The function of communication, for example, is the same function regardless if the hazard is an earthquake or a hurricane. 6. Because of this realization, and the difficulty of dealing with a large range of disaster plans, a comprehensive or all-hazards approach, which focuses on the types of functions that government performs regardless of the type of disaster, has been adopted by most jurisdictions. 7. These include such common functions as: a. Capability Assessment (or Community Profiling) 10 Student Manual 3 Mu Extension
11 b. Capability Maintenance i. Testing and updating of plans ii. Testing Equipment iii. Training and Education Programs c. Continuity of Government (or Operations) d. Direction and Control e. Essential Public Services (food, medical care, etc.) Maintenance f. Evacuation & Sheltering g. Hazard, Vulnerability, Risk Analysis or Assessment h. Planning i. Public Safety Maintenance j. Resource Management k. Warning and Communications 8. There is nothing magic to this specific list of functions. One may encounter different categorizations in the literature. What matters is that in planning an attempt be made to look for common functions. 9. It is recognized, of course, that there are unique features to each hazard, so detailed hazard specific responses and annexes to all-hazards plans do need to be developed. 10. Benefits: Another benefit of all-hazards emergency management is that it affords cross-training opportunities for responder organizations and helps to avoid duplication of effort in other words it facilitates a move toward an Integrated Emergency Management approach. Fire and Rescue Training Institute Student Manual 3 11
12 11. In the words of Enrico Quarantelli, Apart from theoretical, logical or empirical research reasons for taking a generic or all hazard approach to disaster planning, there are also some practical ones. These include being: a. cost-efficient in terms of expenditure of time, effort, money and resources; b. a politically better strategy because it mobilizes a wider range of groups interested in disaster planning thus creating a more powerful constituency for the process; c. a major way of avoiding duplication, conflict, overlaps, and gaps in preparedness activities and actual responses to disasters; and d. a way of increasing efficiency as well as effectiveness in any organized effort to cope with disaster occasions (Quarantelli 1992, 10). K. Principle #4: Integrated Emergency Management System 1. The fourth principle of U.S. emergency management is referred to as IEM or IEMS for Integrated Emergency Management or Integrated Emergency Management System. 2. IEMS was adopted by FEMA in the timeframe in order to: a. Improve US hazard and disaster management functions (Perry and Mushkatel 1986, 130), and b. Broaden Congressional Support for an Enhanced Civil Defense Budget 3. The goal is to develop and maintain credible emergency management capabilities nationwide for all types of emergencies, at all levels of government. 4. IEMS seeks a continual upgrading of emergency management capabilities and a reduction of duplicated efforts and resources through community-wide planning and the integration of disaster and emergency management roles and responsibilities throughout a political jurisdiction and into the community. 5. IEMS seeks to achieve a more complete integration of emergency management planning into mainstream state and local policy-making and operational systems (FEMA 1993 (Sep), 1-9). 12 Student Manual 3 Mu Extension
13 6. It is applicable to all jurisdictions regardless of size or level of sophistication, even though not all are confronted by the same hazards, and not all have or require the same capability. L. Principle #5: the four phases of the disaster life cycle:the fifth fundamental of U.S. Emergency Management is referred to as the Four Phases of the disaster life cycle. 1. Mitigation 2. Preparedness 3. Response 4. Recovery 5. It has been written that: Disasters do not just appear one day. Rather, they exist throughout time and have a lifecycle of occurrence which must be matched by a series of management phases that include strategies to mitigate hazards, prepare for and respond to emergencies, and recover from their effects (FEMA 1993 (Sep),1-5). 6. Within the U.S., emergency activities have been into four phases that require different types of organization and preparation: a. Mitigation b. Preparedness c. Response, and d. Recovery e. Prior to this time it was not uncommon to see time phases discussed in terms of pre-event, event, and post-event; or prevention preceding mitigation instead of being collapsed into it; or recovery broken up into such subcategories as restoration, rehabilitation, redevelopment and reconstruction. 7. Here are some FEMA definitions of Mitigation. Fire and Rescue Training Institute Student Manual 3 13
14 a. Mitigation is any action of a long-term, permanent nature that reduces the actual or potential risk of loss of life or property from a hazardous event (FEMA 1998 (March), 9-25) b. Mitigation refers to activities which actually eliminate or reduce the chance of occurrence or the effects of a disaster.it also includes long-term activities which reduce the effects of unavoidable disasters (FEMA 1993 (Sep), 1-7 and 1-10). c. Mitigation includes activities designed to postpone, dissipate, or lessen the effects of a disaster or emergency. In general, mitigation is the initial phase. It should be considered long before an emergency occurs. (FEMA 1995, II-2) 8. The point is that Mitigation is: a. taking sustained actions to reduce or eliminate long-term risk to people and property from hazards and their effects. (FEMA 1998 (May), SM 1-12) 9. Key Terms: a. Measures taken long before disaster threatens not upon notification b. Measures that eliminate or reduce the threat or the consequences c. Measures that are long-term, permanent or sustained not temporary 10. Examples are: a. Building codes, regulations, ordinances and standards: b. Building/facility design: c. Critical and public facilities policies and projects such as d. Land-use planning, zoning and regulations e. Acquisition or relocation of structures f. Hazards control: g. Hazards regulation 14 Student Manual 3 Mu Extension
15 h. Real estate disclosure provisions i. Retrofitting measures j. Public education, awareness and outreach contour farming to help reduce flood potential 11. Mitigation is important to: a. Protect people and structures b. Reduce the costs of disaster response c. Help reduce the Federal debt. (FEMA 1998 (March), 9-25) 12. The 2nd disaster life cycle phase is preparedness Preparedness is planning how to respond in case an emergency or disaster occurs and working to increase resources available to respond effectively (FEMA 1993, 1-8). 13. Another way to say this is that: a. Preparedness is planning now on how to respond in case of emergency or disaster in order to protect human lives and property, and developing capabilities and programs that contribute to a more effective response. b. Preparedness is an insurance policy against emergencies since we cannot mitigate against every disaster. It is undertaken because mitigation activities cannot keep all emergencies from happening. (FEMA 1995, II-2) c. Key Terms: i. Planning ii. Training/disaster education iii. Exercises 14. Preparedness activities include: a. Establishing Hazard and Emergency-Related Laws, Regulations and Authorities: Fire and Rescue Training Institute Student Manual 3 15
16 b. Planning, Policies and Procedures: c. Development of an Emergency Operations Plan in order to ensure the most effective, efficient disaster response. d. Capability Development Such as the pre-emergency establishment of e. Training and Education: f. Tests, Exercises and Drills for Personnel and Equipment (FEMA 1995, II.2). g. Insurance Coverage 15. The third phase of the disaster life cycle is response. Emergency response activities are conducted during the time period that begins with the detection of the event and ends with the stabilization of the situation following impact (Lindell and Perry 1992, 13) M. FEMA definition: Conducting emergency operations to save lives and property by positioning emergency equipment and supplies; evacuating potential victims; providing food, water, shelter, and medical care to those in need; and restoring critical public services. (FEMA 1998 (May), SM ) 1. Response efforts seek to: a. Implement preparedness measures upon detection of imminent or approaching danger b. Provide or enable emergency assistance as in: c. Confront hazard effects and reduce damages d. Enhance recovery potential 2. This phase of activity is marked by time pressures and a sense of urgency that is less prevalent in mitigation, preparedness, and recovery. In the world of disaster response, minutes of delay can cost lives and property (Lindell and Perry 1992, 14). 16 Student Manual 3 Mu Extension
17 3. One of the clues that response efforts are turning into recovery efforts is when this sense of crisis passes 4. The 4th disaster life cycle phase is recovery. 5. In the past, the lion s share of financial resources devoted to emergency management has gone to disaster recovery. (Lindell and Perry 1992, 14) 6. Recovery refers to those non-emergency measures following disaster whose purpose is to return all systems, both formal and informal, to as normal as possible (FEMA 1995, Introduction to Emergency Management Course, II-2). a. Recovery means rebuilding communities so that individuals, businesses, and governments can: i. Function on their own. ii. Return to normal life. iii. Protect against future hazards. 1 b. Recovery activities generally begin after the response phase, but, depending on the recovery measure, can begin while others are still in disaster response and can continue for years. (FEMA 1995, II-2) c. One FEMA Federal Coordinating Officer has stated that one day he realized he had just transitioned from a response to a recovery mode when he started asking how much does that cost questions. 7. Examples are: a. Crisis counseling may help victims of catastrophic loss b. Debris clearance (from non-critical transportation routes) c. Development of a Recovery Plan or strategy (after the fact) d. Disaster Relief assistance for individuals, families and communities e. Reconstruction Fire and Rescue Training Institute Student Manual 3 17
18 f. Redevelopment loans g. Temporary housing (non-emergency) N. Personalizing the Four Phases: Student activity 1. Typical emergencies that can occur in one s home can illustrate the four phases: (write in the space provided) a. First, you prepare to protect yourself or others if an emergency occurs. b. If an accident does happen, you administer first aid or get medical attention if necessary. c. Later, you clean up or repair any damage d. Finally, you ask yourself how the accident happened and how it can be prevented from happening again. You take steps you believe would lessen the problems you experienced handling the accident. O. Emergency management problem areas: 1. Low occurrence of significant events a. Disasters are by their very nature high-risk, low probability events. b. Their infrequency makes it difficult to justify expenditure of public money in view of seemingly more pressing, on-going public needs and issues except when one happens. P. It has been estimated, for example that the typical U.S. community faces a major disaster about once every twelve years (Coleman and Granito 1998). Q. That is why emergency management has such low interest and funding. 18 Student Manual 3 Mu Extension
19 1. Lack of strong political constituency: a. Because disasters generally occur so infrequently in any given community, emergency management support groups or constituencies fail to develop or come together with sufficient strength to overcome obstacles. 2. Resistance to unfunded federal mandates a. A corollary problem of issue low event occurrence within the realm of disaster policy is traditional American opposition toward, or resistance to, national planning and regulation (especially fears of Federal zoning) especially when unfunded. b. Resistance to emergency preparedness is a given. 3. Disaster ignorance: a. Too often, local officials and even emergency managers assume, wrongfully, that routine procedures will meet the demands of disaster and thus allow themselves to be governed by the more pressing matters of daily routines. 4. Difficulties Measuring Effectiveness a. Unless a community has experienced a disaster within recent memory, it is frequently difficult to make the case that emergency management programs would be effective cost-benefit analyses contain enough ifs that making the case that dollars invested in mitigation and preparedness programs would pay off in bigger dividends in the future. 5. Technical and administrative know-how: a. In order to accomplish emergency management responsibilities nationwide, a cadre of professionals is required at every level of government and within the private sector which can bring to an organizational management team requisite knowledge-based competencies (education) and skills-based operational competencies (training). R. Emergency Manager Stereotype 1. Not college educated (4-Year Degree) 2. White 3. Late middle-aged Fire and Rescue Training Institute Student Manual 3 19
20 4. Male 5. Emergency management is 2nd or 3rd career 6. Job obtained other than with EM knowledge, skills, and abilities 7. Spends EM career in one jurisdiction 8. Has not done a risk assessment 9. Has not joined an EM professional association 10. Does not read the disaster research literature 11. Is disaster response oriented a. Reactive b. Command and control style 12. Universe of Professional Contacts is generally Emergency Services Personnel 13. Plans For the Jurisdiction 14. Frequently Wears Other Hats 15. Not Well Paid 16. EM Office is Not Well Funded 17. Many Part Time and Volunteer Positions R. New generation of emergency managers: 1. College educated many with emergency management degrees 2. More professional and knowledgeable 3. Younger 4. More diverse more reflective of U.S. society 5. Culturally sensitive 20 Student Manual 3 Mu Extension
21 6. Emergency management is career of 1st choice 7. Primary focus is building disaster resilient communities 8. Proactive 9. Life-long learner reads hazards/disasters research 10. Joins EM and/or related professional associations 11. Plans with rather than for jurisdictional stakeholders-partners and networks 12. Better paid 13. Better funded 14. Upwardly and geographically mobile S. Broader Range of Working Contacts 1. Elected and appointed officials 2. Economic development commissions 3. Planning and zoning boards/commissions 4. Builders and developers 5. Natural resources and environmental protection agencies/groups 6. Academia and professional organizations 7. Community based organizations Fire and Rescue Training Institute Student Manual 3 21
22 T. High in demand are such attributes as: 1. Interpersonal communication skills; 2. Long-range planning and strategy development capability; 3. Team-playing and networking capabilities; 4. Understanding of importance of disaster resilient communities philosophy within a sustainable development context; 5. Ability to work under pressure. 22 Student Manual 3 Mu Extension
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