STUDENT MANUAL for Emergency Management Operations Course (EMOC) June 1998 Federal Emergency Management Agency National Emergency Training Center
TABLE OF CONTENTS Pre-Course Orientations Unit P1: Introduction/Overview of Local EM Program...SM P1-1 Unit P2: Review of Geography, Demographics and Local Hazards...SM P2-1 Unit P3: Review of the Emergency Operations Plan and Layout of the EOC...SM P3-1 Unit P4: Government Organization...SM P4-1 Unit P5: Law Enforcement Orientation...SM P5-1 Unit P6: Fire Service Orientation...SM P6-1 Unit P7: Emergency Medical Services Orientation...SM P7-1 Unit P8: Public Works/Utilities Services Orientation...SM P8-1 Unit 1: Introduction, Overview and Administrative Announcements...SM 1-1 Unit 2: Emergency Management Overview...SM 2-1 Unit 3: Federal and State Role in Response...SM 3-1 Unit 4: Role and Organization of the EOC...SM 4-1 Unit 5: Mutual Aid Pacts...SM 5-1 Unit 6: Psychological and Social Climate of the EOC...SM 6-1 Unit 7: Maintaining Cooperation and Coordination in the EOC...SM 7-1 Unit 8: Conducting Briefings in the EOC...SM 8-1 Unit 9: Mass Care/Sheltering...SM 9-1 Unit 10: Media Relations/Public Information...SM 10-1 Unit 11: Rapid Assessment...SM 11-1 Unit 12: Recovery Operations...SM 12-1 Unit 13: Resource Management Functions...SM 13-1 Unit 14: Organizing the EOC...SM 14-1 Unit 15: External EOC Operations...SM 15-1 Unit 16: Internal EOC Operations...SM 16-1 Unit 17: Reports...SM 17-1 Federal Emergency Management Agency/Emergency Management Institute TOC-1
OBJECTIVES: Unit P1 Introduction/Overview of Local EM Program TIME: ** (Class time determined by instructor) At the conclusion of this unit, participants will be able to: Describe the role of and the need for an emergency program manager and his/her relationship to the executive level of local government and to other response agencies. List the capabilities, limitations, and needs of the emergency program manager, and analyze the need for the local emergency program management team to be involved in the development and coordination of emergency plans, policies, and procedures. SCOPE: Emergency management responsibilities of the emergency program manager; the emergency program manager and the emergency management system; the role of the local emergency program management team in the development and coordination of emergency plans, policies, and procedures. METHODOLOGY: Lecture/discussion REFERENCES: Course Student Manual Federal Emergency Management Agency/Emergency Management Institute SM P1-1
Introduction and Overview At the conclusion of this unit, you should be able to: Describe the role of and the need for an emergency program manager and his/her relationship to the executive level of local government and to other response agencies. List the capabilities, limitations, and needs of the emergency program manager, and analyze the need for the local emergency program management team to be involved in the development and coordination of emergency plans, policies, and procedures. Models for Emergency Management There are several models for placement and staffing of the emergency management function: Emergency manager as an additional responsibility to an existing position Full time emergency manager Multi-disciplinary emergency management team Volunteer emergency manager Roles of the Emergency Manager The various roles that the emergency manager must play are: Coordinator A resource for the community as an expert Liaison among various government entities Improviser Federal Emergency Management Agency/Emergency Management Institute SM P1-2
Core Capabilities There is a set of core capabilities that the emergency manager should possess: Hazard identification Response capability assessment Documentation of capability shortfalls Program development planning Phases of Emergency Management There are four phases of emergency management that represent a continuous cycle not one-time events. Activities within the different phases can occur simultaneously. The four phases are: Planning/preparedness Response Recovery Mitigation The response phase generally receives the majority of attention, but the other phases especially mitigation can be equally important in their role in saving lives and protecting property. Legal Issues Federal Emergency Management Agency/Emergency Management Institute SM P1-3
Legal authority of the emergency manager Continuity of government Safeguarding of records and documents The disaster declaration process Proper preparation of mutual aid agreements The need for proper and thorough documentation Emergency Operations Center (EOC) Purpose Functions (with emphasis on decision making) Facilities Communications Summary and Questions Federal Emergency Management Agency/Emergency Management Institute SM P1-4
OBJECTIVES: Unit P2 Review of Geography, Demographics and Local Hazards TIME: ** (Class time determined by instructor) At the conclusion of this unit, participants will be able to: List the geographic and demographic characteristics of the local community. List the hazards and vulnerabilities of the local community. List the meteorological hazards that could impact the community. Describe the National Weather Service s system(s) of warning the public of a pending meteorological hazard. SCOPE: Overview of local geography, demographics; review of hazards and vulnerabilities; overview of meteorological hazards; characteristics of specific hazards; NOAA Weather Radio; warning the public of a pending meteorological hazard. METHODOLOGY: Lecture/discussion REFERENCES: Course Student Manual Federal Emergency Management Agency/Emergency Management Institute SM P2-1
Introduction and Overview At the conclusion of this unit, you should be able to: List the geographic and demographic characteristics of the local community. List the hazards and vulnerabilities of the local community. List the meteorological hazards that could impact the community. Describe the National Weather Service s system(s) of warning the public of a pending meteorological hazard. Geographic and Demographic Characteristics of the Community Your instructor will discuss the general geographic conditions for the community, including topographic features that may pose an impact on future disasters. These features may include rivers or streams that routinely flood, mountains or flatlands that pose problems with fire conditions, and other natural barriers or conditions of the community. Your instructor will also discuss the demographic makeup of the community, including: Census information about the populations at risk. Community infrastructure. Hazards the community is vulnerable to. Overview of Meteorological Hazards The destructive potential of meteorological hazards has increased greatly during the past century due to the industrialization and urbanization of our society. Our capability to deal with these hazards has increased as well. Federal, State, and local governments are constantly working to improve emergency plans that will protect people from the worst effects of a crisis and also provide aid during the recovery period. Federal Emergency Management Agency/Emergency Management Institute SM P2-2
Types of Meteorological Hazards Characteristics of the following meteorological hazards will be briefly described. Thunderstorms Lightning Hail Floods Hurricanes Winter storms/blizzards Other Geological Hazards Volcanoes Earthquakes Other National Weather Service Warning Systems Warnings consist of messages to individuals, groups, or populations that provide them information about: 1. The existence of danger 2. What can be done to prevent, avoid, or minimize the danger Since the kind of disaster agent that poses a threat is of crucial importance to warning processes, it is necessary to analyze the dimensions along which disaster agents can differ. There are at least nine major characteristics or dimensions along which disaster agents may differ. These include: 1. Frequency 2. Physical consequences 3. Speed of onset Federal Emergency Management Agency/Emergency Management Institute SM P2-3
4. Length of possible forewarning 5. Duration 6. Scope of impact 7. Destructive potential 8. Gross predictability Having to do with the Weather Service s ability to predict, on a grand scale, the outcome of the weather system and its potential impact on the community threatened by the system(s). Usually it is represented by a percentage and correlates to similar past weather events. 9. Gross controllability Having to do with the public s ability to control the impact of the weather event on themselves by the actions they might take, such as taking shelter, moving to higher ground, evacuating, or other protective measures. It is a direct relationship to the ability of a person to protect himself when faced with a known threat. However, when the threat is not perceived or known about, little or nothing can be done. Sources of Weather Information Effective and accurate dissemination of public information concerning meteorological hazards is very important in order to protect the public. Sources of weather information are: NOAA Weather Wire Service (NWWS) VHF-FM radio National Warning System (NAWAS) Radio reporting and warning coordination Advances in Weather Technology Doppler radar Satellite operations Hurricane forecasting and warning service Federal Emergency Management Agency/Emergency Management Institute SM P2-4
Hurricane prediction models Microwave adaptations to forecasting rainfall Advances in tornado forecasting Summary and Questions Federal Emergency Management Agency/Emergency Management Institute SM P2-5
OBJECTIVES: Unit P3 Review of the Emergency Operations Plan and Layout of the EOC At the conclusion of this unit, participants will be able to: TIME: ** (Class time determined by instructor) Understand the functional sections and components of the Emergency Operations Plan (EOP). Identify the sections, annexes and appendixes of the EOP that pertain to their specific function during emergencies or disasters. Understand the purpose of the EOP and the importance of keeping it current. Become familiar with the location and layout of the Emergency Operations Center (EOC). Understand the functional purpose of the EOC and what operations take place during a disaster or emergency. SCOPE: Overview of the EOP; discussion of each section in the EOP; purpose of the EOP; location of the EOC; layout of the center; operational activities; members of the EOC; roles and responsibilities. METHODOLOGY: Lecture/discussion/demonstration/tour REFERENCES: Course Student Manual Local Emergency Operations Plan Floor plan of the Emergency Operations Center Federal Emergency Management Agency/Emergency Management Institute SM P3-1
Introduction and Overview At the conclusion of this unit, you should be able to: Understand the functional sections and components of the Emergency Operations Plan (EOP). Identify the sections, annexes and appendixes of the EOP that pertain to your specific function during emergencies or disasters. Understand the purpose of the EOP and the importance of keeping it current. Become familiar with the location and layout of the Emergency Operations Center (EOC). Understand the functional purpose of the EOC and what operations take place during a disaster or emergency. Purpose of the EOP The purpose of the Emergency Operations Plan as represented in the plan document Sections of the EOP The various sections of the EOP Federal Emergency Management Agency/Emergency Management Institute SM P3-2
Roles and Responsibilities of Each Department or Agency The roles and responsibilities of each department or agency that is mentioned in the EOP Public or private partnerships that also have a role in disaster response activities Location of the EOC The physical location of the EOC Special access, parking, and logistical issues for members of the EOC team The back-up EOC and its location Federal Emergency Management Agency/Emergency Management Institute SM P3-3
Layout of the EOC The physical layout of the local EOC The location of each position will be pointed out, including a description of the equipment provided and the equipment or supplies that must be provided by the team members when called to activate the EOC. Locations of specialized equipment (radios, computers, etc.) Function and Purpose of the EOC Decision making is the key function Roles and responsibilities of each position in the EOC The process of managing information within the EOC The message management process Federal Emergency Management Agency/Emergency Management Institute SM P3-4
EOC Operations and Capabilities The concept of operation for the EOC SOPs or guidance for the EOC Communication pathways and the capabilities of the equipment Staffing the EOC The staffing pattern for the EOC The concept of shift work in the EOC Activities and preparations staff members should undertake prior to reporting for an EOC shift Federal Emergency Management Agency/Emergency Management Institute SM P3-5
The importance of contact information and the need for back-up personnel Organizational Layout of the EOC The various organizational groups in the EOC: Public safety Health and medical Infrastructure Human needs Information planning Others as necessary The Federal ESF (Emergency Support Function) concept and how it relates to the organizational structure of the EOC EOC/ICS interface Summary and Questions Federal Emergency Management Agency/Emergency Management Institute SM P3-6
OBJECTIVES: Unit P4 At the conclusion of this unit, participants will be able to: Government Organization TIME: ** (Class time determined by instructor) Describe the makeup of the local community governmental organization. Compare emergency management to day-to-day operations. Describe the benefit of a written public policy as an aid in the decision making process during an emergency. SCOPE: Description of the organizational make-up of the community; organizational charts; department heads; relationships to emergency management. Policy making environment; barriers to formulating policy; relationship of policy to emergency services; practical suggestions for overcoming resistance to policy formulation; legal trends and implications. METHODOLOGY: Lecture/discussion REFERENCES: Course Student Manual Federal Emergency Management Agency/Emergency Management Institute SM P4-1
Introduction and Overview At the conclusion of this unit, you should be able to: Describe the makeup of the local community governmental organization. Compare emergency management to day-to-day operations. Describe the benefit of a written public policy as an aid in the decision making process during an emergency. Organizational Makeup of the Local Jurisdiction The organizational makeup of the jurisdiction The roles and responsibilities of each department, agency Day-to-day responsibilities and what, if any, difference occurs during an emergency or disaster Outside public/private partnerships that also have a role in daily government operations Jurisdiction s Organizational Chart Federal Emergency Management Agency/Emergency Management Institute SM P4-2
What Policy Is/ How It Is Written The policy making process must determine an approach to the following subjects: Group decision making structure, authority, and process Relationships between organizations Assignment of responsibilities, e.g., spokesperson, recorder, messenger, etc. Determination of policy issues Communication among group members and between groups Helping each other when needed Tracking events and information sharing Security of information What is policy? What sorts of things are included? How the formation of written public policies dealing with an emergency relate to the nuts and bolts emergency responder. Why is policy important? Federal Emergency Management Agency/Emergency Management Institute SM P4-3
Policy is usually not codified into a single document, but is a collection of memos, phone calls and other directives from higher-ups. The Need for Policy How you identify the need for a policy. This might be from a legislated requirement (such as labeling of hazardous materials) or from experience in a previous disaster where a policy shortcoming was identified. The need to involve those affected by the policy in the policy formulation process. Policies created in a vacuum run the risk of being ignored by those required to implement them. Barriers to Policy Formulation Despite all efforts, there will be some issues you overlook or some situation in which policy may not apply. How to make policy flexible enough to allow responders some leeway in implementation Common barriers to policy formulation and specific techniques for overcoming barriers Summary and Questions Federal Emergency Management Agency/Emergency Management Institute SM P4-4
OBJECTIVES: Unit P5 Law Enforcement Orientation TIME: ** (Class time determined by instructor) At the conclusion of this unit, participants will be able to: Describe law enforcement capabilities, limitations, and needs during normal operations. Describe law enforcement capabilities, limitations, and needs (including mutual aid) during an emergency. Describe the typical coordination required between law enforcement services and other government organizations during an emergency. Recognize the need for involving a law enforcement management team in developing emergency policies, plans, and procedures and in developing training programs to meet community preparedness goals. Discuss how law enforcement organizations interact with other response agencies during emergencies. SCOPE: Capabilities, limitations, and needs during normal and emergency situations; coordination with other government organizations during emergencies; role of law enforcement in developing emergency policy, plans, and procedures; law enforcement emergency training requirements. METHODOLOGY: Lecture/discussion REFERENCES: Course Student Manual Federal Emergency Management Agency/Emergency Management Institute SM P5-1
Introduction and Overview At the conclusion of this unit, you should be able to: Describe law enforcement capabilities, limitations, and needs during normal operations. Describe law enforcement capabilities, limitations, and needs (including mutual aid) during an emergency. Describe the typical coordination required between law enforcement services and other government organizations during an emergency. Recognize the need for involving a law enforcement management team in developing emergency policies, plans, and procedures and in developing training programs to meet community preparedness goals. Discuss how law enforcement organizations interact with other response agencies during emergencies. Perspective It is essential that you understand the need to focus on the role of law enforcement during and after an emergency, and that the priorities, activities and results are often very different from day-to-day policing. During and after emergencies, operations are not business as usual, but dramatically different. You must also understand where law enforcement agencies fit within the Integrated Emergency Management System (IEMS), and the concept of all-hazard, all-risk orientation. Traditionally in law enforcement agencies, the focus has centered on criminality and prevention of crime. Few agencies focus on the role of law enforcement agencies in disaster situations despite the fact that the criminal justice system is heavily impacted by disasters. The law enforcement discipline has several key capabilities and missions after a disaster. These agencies have a role in the IEMS, which includes all phases of the emergency: preparedness, response, recovery and mitigation. Plans and training should take into account all possible hazards facing the community. Legal Considerations Federal Emergency Management Agency/Emergency Management Institute SM P5-2
Law enforcement agencies, like all government entities, face the threat of civil suit daily. While law enforcement administrators are most often concerned with their exposure in use of force and search and seizure cases, there are significant exposures that could arise from a failure to adequately plan, train and equip for disasters and emergencies. Law enforcement jurisdiction and authority varies by state and level of government. Each state has different perspectives on peace officer authority across county or parish lines, between communities or in mutual aid situations. Consider civil liability for deficiencies in emergency plans, training or equipment. There are potential exposures for negligence related to assertions that a law enforcement agency failed to protect the community during disaster periods, in much the same way there is liability for failure to protect in more traditional criminal situations. Disaster Myths Law enforcement personnel often share common misconceptions about the aftermath of a disaster in their community. It is important to examine historical precedent to debunk myths that are most commonly heard. Community morale is shattered; people become dysfunctional. False To the contrary, morale in the community is high following many disasters. Government agencies such as law enforcement are often deluged with potential volunteers and donated goods. Public safety personnel will abandon their assignments to check on their families. False Public employees, and specifically law enforcement personnel, remain on the job and productive, despite concerns for the well being of families and friends. Off duty personnel will respond to work without being called out. Often they have had to be sent home, so they could be rested to relieve those on duty when the disaster strikes. Criminals take advantage; looting and other anti-social behavior surfaces. Generally false Looting has been rare in many disasters. In other cases there have been notable cases of looting, but after most natural disasters, this has been primarily confined to high-crime areas and targets of opportunity that are not frequently patrolled. Many communities have recorded dramatic drops in crime rates immediately following disasters. Crimes against persons are most rare. It should be noted that during the recovery phase bunco-fraud cases rise dramatically, as fly-by-night repair firms defraud victims. Federal Emergency Management Agency/Emergency Management Institute SM P5-3
Preparation Issues While many in law enforcement tend to focus on response to problems, some problems that arise in disasters can be alleviated or minimized if actions are taken in advance of the emergency. This is entirely consistent with the existing theory of crime prevention deal with the problem as early as possible, mitigating its effects. Mitigation is a form of prevention and involves safeguarding facilities and equipment prior to an emergency, such as: Disaster proof facilities Emergency power Security of records Vehicles Personnel Federal Emergency Management Agency/Emergency Management Institute SM P5-4
Key Role of Communications While law enforcement is most often oriented to field-delivered services, without an efficient, professional communications function, field services cannot be performed in a timely or effective manner. This holds true during and after emergencies. Communications centers and their staffs are too often ignored during disaster preparations. Areas of concern are: Redundant systems Dispatch training Multiple/alternate dispatch points Disaster Intelligence/Damage Assessment Central to this segment is the concept that one cannot adequately begin to tackle a problem until first assessing its dimensions. Law enforcement and public safety in general must correctly gauge the severity and geographic extent of damage caused by a disaster before adequate resources can be dedicated to response and relief. Law enforcement plays an important role in that regard. Reports from field units Flash reports Detailed report on LE facility Dispatcher polling of units Coordination with other agencies Airborne units Management Considerations Federal Emergency Management Agency/Emergency Management Institute SM P5-5
While common management principles are fully adequate for day-to-day operations, during emergency operations law enforcement administrators, managers and supervisors need to focus on certain essential aspects of organization. As response strategies change during an emergency, so must systems of organizing and assigning work. Identify critical sites Identify additional resource needs Verify jurisdictional authority Missions for incoming responder teams Food and lodging Incident command Perimeters Decisions regarding the location of perimeters are made after a thorough assessment of the dimensions of the problem and the nature of the hazard or damage. Law enforcement managers must assess availability and capability of resources and ensure that perimeters are staffed as needed. Purpose/objective of the perimeter Outer perimeter Inner perimeter Forced choice routing Airspace restrictions Warnings and Evacuations A critical task for law enforcement agencies, in conjunction with other public safety entities, is that of providing adequate and timely warning of impending hazards to the Federal Emergency Management Agency/Emergency Management Institute SM P5-6
public. While in some areas this is done often, in others there is little experience in disseminating such information. There are clear lessons from agencies that have had to deliver such information to the public. Public warning methods Using the media Evacuation training Evacuation procedure Answering public s questions Secure evacuated areas Curfews Red Cross Summary and Questions Federal Emergency Management Agency/Emergency Management Institute SM P5-7
OBJECTIVES: Unit P6 At the conclusion of this unit, participants will be able to: Fire Service Orientation TIME: ** (Class time determined by instructor) List fire service capabilities, limitations, and needs during normal operations. List fire service capabilities, limitations, and needs, including mutual aid, during emergency operations. Recognize the need for command that is communications, coordination and control between fire service and other public/private organizations, during major incidents. Describe how the fire service interacts with other response agencies during emergencies. Recognize the need for fire service involvement in developing emergency policy, plans, and procedures. SCOPE: Capabilities, limitations, and needs during normal and emergency operations; necessity of a good command system; role of the fire service in developing emergency policy, plans, and procedures. METHODOLOGY: Lecture/discussion REFERENCES: Course Student Manual Federal Emergency Management Agency/Emergency Management Institute SM P6-1
Introduction and Overview At the conclusion of this unit, you should be able to: List fire service capabilities, limitations, and needs during normal operations. List fire service capabilities, limitations, and needs, including mutual aid, during emergency operations. Recognize the need for command that is communications, coordination and control between fire service and other public/private organizations, during major incidents. Describe how the fire service interacts with other response agencies during emergencies. Recognize the need for fire service involvement in developing emergency policy, plans, and procedures. Pre-Emergency Planning The fire service identifies hazards within the community and assists in developing largescale emergency operations plans. The fire service develops standard operating procedures for complex emergency operations, i.e., HazMat incidents, mass casualty incidents, weather emergencies, etc. Discuss the ability of the fire service to access pre-emergency information systems. There is a need for and benefits to be derived from exercising the plans developed for response to large-scale emergency operations during hypothetical emergency situations. Capabilities, Limitations, Needs Federal Emergency Management Agency/Emergency Management Institute SM P6-2
Capabilities Special Equipment Limitations of the fire service during large-scale emergency operations. Limited resources, physical limitations and risk versus benefit decisions. Needs of the fire service during all-hazard emergency operations. Use of mutual aid. Necessity for mutual aid agreements. Need to exercise the mutual aid agreements. Need to use technical expertise during large, complex emergency operations. Command and Control The complexity of large-scale emergency operations necessitates the use of an Incident Command System (ICS). Concept of a Unified Command Structure during large, complex emergency operations. Large-scale emergency operations will result in an interagency response requiring an Incident Command System capable of coordinating multiple scene resources. Without proper scene command and control, conflicting interagency operations rather than complimentary operations may occur. Federal Emergency Management Agency/Emergency Management Institute SM P6-3
Interagency Response The role of the fire service as it interacts with the Federal emergency response system during large-scale emergency operations. The role of the fire service as it interacts with the State emergency response system during large-scale emergency operations. Local interagency emergency response to a large-scale emergency operation and interaction with the fire service. Recovery The role of the fire service during the recovery process after a large-scale emergency operation. Returning the community to normal functions. Restoring the fire service to normal operating capabilities. The fire service relies on mutual aid resources to continue normal fire service coverage while recovery from large-scale emergency operations is progressing. The role of the fire service in assisting other agencies in the recovery process. Critical Incident Stress Debriefing (CISD) for emergency responders. Federal Emergency Management Agency/Emergency Management Institute SM P6-4
Thoroughly analyze a fire department s planning, response and recovery operations, after a large-scale emergency operation. Summary and Questions Federal Emergency Management Agency/Emergency Management Institute SM P6-5
OBJECTIVES: Unit P7 Emergency Medical Services Orientation TIME: ** (Class time determined by instructor) At the conclusion of this unit, participants will be able to: Describe the different operational modes for emergency medical services systems. List capabilities, limitations, and needs of emergency medical services during mass casualty and disaster events. Analyze the coordination requirements among private and public medical service providers, EMS management, and governmental managers during large scale medical emergencies. Analyze the necessity to include medical managers during the development and testing of emergency plans, policies, and procedures. Describe how EMS interacts with other response agencies during emergencies. SCOPE: Operational modes for emergency medical services systems; capabilities, limitations and needs of medical services during mass casualty and disaster events; coordination requirements among EMS and medical providers; role of emergency medical services in the development and testing of emergency plans, policies, and procedures. METHODOLOGY: Lecture/discussion REFERENCES: Course Student Manual Federal Emergency Management Agency/Emergency Management Institute SM P7-1
Introduction and Overview At the conclusion of this unit, you should be able to: Describe the different operational modes for emergency medical services systems. List capabilities, limitations, and needs of emergency medical services during mass casualty and disaster events. Analyze the coordination requirements among private and public medical service providers, EMS management, and governmental managers during large-scale medical emergencies. Analyze the necessity to include medical managers during the development and testing of emergency plans, policies, and procedures. Describe how EMS interacts with other response agencies during emergencies. Background Information on EMS Reasons for importance Definition of EMS Historical development of EMS People of EMS Models of organizational structure Federal Emergency Management Agency/Emergency Management Institute SM P7-2
Operational Modes of EMS There are four operational modes of EMS: Routine Multiple casualty Mass casualty Disaster Routine Mode: Always urgent Personnel intensive Field communication requirements to dispatch and to hospital Medical control and direction Resources available 24 hours a day Minimal impact on resources Incident command system for scene management Multiple Casualty Mode: Federal Emergency Management Agency/Emergency Management Institute SM P7-3
All characteristics of routine mode Three or more victims at single site Little impact on urban response capabilities Field resources temporarily stressed More than one agency involved in scene management Little impact on hospitals if properly managed And these keys to success: Categorization of facilities and good field to hospital communication Requires pre-arranged mutual aide agreements Incident command system expanded from that used in the routine mode Federal Emergency Management Agency/Emergency Management Institute SM P7-4
Mass Casualty Mode: All the characteristics of multiple casualty mode 10 or more victims at the same site and time Several hour commitment of rescue resources Staging of vehicles and equipment Establishment of access and egress routes High level of media attention Triage and categorization of victims is required Management of victim destinations necessary to avoid overcrowding of hospital resources Hospital personnel may respond to the scene Establishment of a temporary morgue Regional mutual aid utilized Expanded scope of incident command system And the keys to its success: Planning Exercise Good communications Federal Emergency Management Agency/Emergency Management Institute SM P7-5
Disaster Mode: Impacted area involves multi-jurisdictional agencies Victims may be spread over wide geographical area Number of victims may overwhelm local resources Injuries vary in criticality Field responders lose mobility Hospital and critical facilities may be damaged Widespread power outages and loss of water supply Supplies and personnel exhausted within 24 hours All communication systems affected Normal transportation routes may be damaged Rescue of live victims up to 1 week after event Incident command system fully expanded Federal Emergency Management Agency/Emergency Management Institute SM P7-6
Planning A good emergency medical plan identifies: Alternate routes and modes of transportation available Equipment needed to clear roads for access to impacted areas Limitations of equipment and personnel Alternate treatment centers for less severe injuries Appropriate management of personnel, including volunteers Agencies and organizations responsible for disaster response Limitations and needs of emergency medical services during mass casualty and disaster events Limitations and Needs of EMS Exhaustion of supplies Personnel fatigue Communication Documentation Inclusion of medical managers in the planning process Key Issues Federal Emergency Management Agency/Emergency Management Institute SM P7-7
The inclusion of EMS personnel in the planning process Training Coordination Research Summary and Questions Federal Emergency Management Agency/Emergency Management Institute SM P7-8
OBJECTIVES: Unit P8 Public Works/Utilities Services Orientation TIME: ** (Class time determined by instructor) At the conclusion of this unit, participants will be able to: Describe the need to identify hazards and possible results of hazards. Describe the role of each functional area within the public works organization. Describe public works capabilities, limitations, and needs during a disaster event. Describe the need for involving public works personnel in developing emergency policies, plans, and procedures. SCOPE: Public works functional areas; public works capabilities, limitations, and needs during normal and emergency operations, including special planning considerations; coordination between public works and other local departments; role of public works in developing preparedness and response plans, policies and procedures. METHODOLOGY: Lecture/discussion REFERENCES: Course Student Manual Federal Emergency Management Agency/Emergency Management Institute SM P8-1
Introduction and Overview At the conclusion of this unit, you should be able to: Describe the need to identify hazards and possible results of hazards. Describe the role of each functional area within the public works organization. Describe public works capabilities, limitations, and needs during a disaster event. Describe the need for involving public works personnel in developing emergency policies, plans, and procedures. There is a need for coordination in public works emergency operations, including the role of lifeline organizations and private resources. There is also a need for coordination with police, fire, emergency medical services and emergency management activities. Functional areas within public works. What does public works do? Limitations of public works in response to an emergency or a disaster. Options to fill in for some limitations on personnel, supplies, and equipment. Involvement of the public works and lifelines organizations in emergency planning. Interaction with other response agencies. Federal Emergency Management Agency/Emergency Management Institute SM P8-2
Public Works and Lifelines The functional areas within public works are listed below: Streets and highway systems: Construction, repair and maintenance performed by State, county or local public works organizations. Lifelines: power, gas, water, sewer, cable, communications: Usually private or quasi-governmental, although many municipalities actually control their own water, sewage and electric operations. Building inspections and code enforcement: Public works, planning and fire departments are responsible for this activity. Solid waste collection and disposal: Agency operation, private contractor or combination of both. Engineering: Agency operation, private contractor or combination of both. Vehicle maintenance: May be responsibility of agency with vehicles (i.e., schools, fire, police, and sanitation) or of a central vehicle maintenance operation. Building and ground maintenance: Contractors, individual agencies, or one maintenance agency responsible for all governmental property. Port and airport facilities: State, county or local public works. Private public works resources: Federal Emergency Management Agency/Emergency Management Institute SM P8-3
Contractors, equipment rental, consultants and material suppliers. Parks and recreation upkeep: Natural resources, environmental services, human services, parks and recreation. Emergency Capabilities of Public Works Special capabilities of the public works lifelines organizations that are used in emergencies: Damage assessment Debris clearance Search and rescue Traffic control Lifelines restoration Building and bridge inspection Potable water and sanitation services Flood control Limitations and Needs of Public Works Limitations peculiar to public works and lifelines organizations during the emergency response: Fewer personnel Since public works is normally staffed for only the day shift, there are fewer personnel overall in the public works department than in other response organizations. Going to 12-hour shifts during response stretches the capabilities of the workforce, limiting public works response. Flat tires Heavy debris accumulation will tax public works capabilities for tire replacement and repair on municipal vehicles. Federal Emergency Management Agency/Emergency Management Institute SM P8-4
Power needs for fueling and communications Lack of electric power limits public works capabilities to provide fueling service and communications for other response agencies. Staffing redundancy Staff redundancy must be designed into public works management and incident command system for individuals who are injured or have medical problems during the response period. Options Available Options that are available to public works and lifelines organizations to arrange for additional personnel, equipment and materials: Mutual aid Execute pre-arranged agreement with local contractors County and State emergency resources Professional societies for building inspection Private utility resource requests to other utility companies Volunteers Federal Emergency Management Agency/Emergency Management Institute SM P8-5
Private material resources, such as: Cellular phones Sand bags Pipe Plywood Barricades Portable toilets Equipment Radios Consultant engineers Involving Public Works in Planning Participation of the public works organization in the development of emergency operation policies, plans and procedures Items requiring attention for all four phases of emergency management Mitigation Examples of mitigation-related items for inclusion in policies, plans and procedures might include: Retrofitting unreinforced structures Modification of building codes Standards for flood plain construction Reinforcement of flood control structures Hardening of lifeline systems Reinforcing of police and fire stations Response Emergency operating plans assume that agency responses will be predictable and coordinated among all departments. It is of critical importance that public works personnel develop the concept of horizontal and vertical coordination in disaster response. These discussions will clarify relationships among emergency roles and tasks that are common to all managers of emergency operations. Police, fire and emergency medical services will understand that public works crews are first responders in certain types of disasters. Federal Emergency Management Agency/Emergency Management Institute SM P8-6
Short Term Recovery During the short-term recovery period, the public works organization is involved in: Damage assessment Damage survey reports for public facilities Restart priorities for lifeline systems Building inspection Continuing to provide normal service to unaffected areas Long Term Recovery/Reconstruction During long term recovery and reconstruction, public works is responsible for: Repairing or reconstructing damaged public facilities in accordance with approved damage survey reports Issuing building safety permits Inspecting repairs made to private facilities Ensuring that mitigation measures are integrated into reconstruction efforts Interaction with Other Agencies Proper integration of public works activities with other responding agencies is critical to successful management of the emergency or disaster. Opportunities for integration with other agencies: Development of emergency plans, policies, and procedures Mitigation measures for public facilities Damage assessment Debris clearance Search and rescue Fire suppression Evacuation assistance Federal Emergency Management Agency/Emergency Management Institute SM P8-7
Inspection of shelters Lifeline services for shelters Containment of hazardous material spills Lifeline restart priorities Shared use of private resources Barricades and signing for traffic control Inspection of public agency buildings FEMA damage survey reports Repair/reconstruction of damaged public facilities Summary and Questions Federal Emergency Management Agency/Emergency Management Institute SM P8-8
Unit 1 Introduction, Overview and Administrative Announcements TIME: 60 min OBJECTIVES: At the conclusion of this unit, participants will be able to: Discuss the course purpose and objectives. Describe the course framework to include scope, methodologies, exercise design and time plan. SCOPE: Welcome and introductions; local official remarks; administrative announcements; review of course objectives, agenda and exercise. METHODOLOGY: Lecture/discussion REFERENCES: Course Student Manual Federal Emergency Management Agency/Emergency Management Institute SM 1-1
Welcome to the Course The instructor should introduce him/herself and welcome you to the course. Introduction of Course Manager Remarks by Local Government Official Administrative Announcements The instructor will review the following administrative information for the course: Fire alarm and exits Sign-up sheet Course materials Location of restrooms Breaks Lunch Phone calls/messages Parking Location of the exercise Lodging (if necessary) Purpose of the Course The instructor will review the purpose of the course as outlined in the Plan of Instruction. The fundamental purpose of the EMOC is to improve the operational capabilities within the participating locality and to improve the ability to manage emergencies through preparedness, response, recovery and mitigation. The EMOC course also provides local government officials and key staff an opportunity to increase their knowledge of emergency management procedures and their local emergency management system and plan. Federal Emergency Management Agency/Emergency Management Institute SM 1-2
In support of this goal, EMOC is designed to accomplish these measurable and verifiable objectives: Analyze plans and procedures. Assess resources. Initiate team building activities. Improve coordination. Clarify roles and responsibilities. Identify areas of strength and those needing improvement. Stimulate interest for mitigation actions. Examine plans and systems in dynamic situations. In addition, the course will: Motivate public officials to support the emergency management program. Improve individual performance. Foster cooperation among participating organizations. Help formulate the locality s public policy for issues related to emergency management. Improve EOC procedures and support functions. Improve hazard vulnerability assessment and risk analysis. Enhance local staff s understanding of exercise development. Overview of the Agenda The instructor will review the Student Agenda. Exercise Overview For the exercise portion of the course, the instructor will: Review the activities of the second and third day exercise, along with the intended outcome or objectives. Review the logistical requirements of the exercise. Reinforce the need for participants to be on time and ready to function in their assigned roles. Depending on the exercise selected, provide any pre-exercise messages (scenario build-up, weather, etc.) as necessary. Summary and Questions Federal Emergency Management Agency/Emergency Management Institute SM 1-3
Unit 2 Emergency Management Overview TIME: 45 min OBJECTIVES: At the conclusion of this unit, participants will be able to: Describe the role and the need for an emergency program manager and his or her relationship to the executive level of local government and to other response agencies. List the capabilities, limitations, and needs of the emergency program manager, and analyze the need for the local emergency program management team to be involved in the development and coordination of emergency plans, policies, and procedures. SCOPE: Emergency program management responsibilities of the emergency program manager; the emergency program manager and the emergency program management system; the role of the local emergency management program management team in the development and coordination of emergency plans, policies, and procedures. METHODOLOGY: Lecture/discussion REFERENCES: Course Student Manual Federal Emergency Management Agency/Emergency Management Institute SM 2-1
Introduction and Overview At the conclusion of this unit, you should be able to: Describe the role and the need for an emergency program manager and his or her relationship to the executive level of local government and to other response agencies. List the capabilities, limitations, and needs of the emergency program manager, and analyze the need for the local emergency program management team to be involved in the development and coordination of emergency plans, policies, and procedures. Models for Emergency Management There are several models for placement and staffing of the emergency management function: Emergency manager as an additional responsibility to an existing position Full time emergency manager Multi-disciplinary emergency management team Volunteer emergency manager Roles of the Emergency Manager The various roles that the emergency manager must play are: Coordinator A resource for the community as an expert Liaison among various government entities Improviser Core Capabilities Federal Emergency Management Agency/Emergency Management Institute SM 2-2
There is a set of core capabilities that the emergency manager should possess: Hazard identification Response capability assessment Documentation of capability shortfalls Program development planning Phases of Emergency Management There are four phases of emergency management that represent a continuous cycle not one-time events and activities within the different phases can occur simultaneously. The four phases are: Planning/preparedness Response Recovery Mitigation The response phase generally receives the majority of attention but the other phases especially mitigation can be equally important in their role in saving lives and protecting property. Legal Issues Legal authority of the emergency manager Continuity of government Safeguarding of records and documents The disaster declaration process Federal Emergency Management Agency/Emergency Management Institute SM 2-3
Proper preparation of mutual aid agreements The need for proper and thorough documentation Summary and Questions Federal Emergency Management Agency/Emergency Management Institute SM 2-4
Unit 3 Federal and State Role in Response TIME: 45 min OBJECTIVES: At the conclusion of this unit, participants will be able to: Generally describe the roles of the Federal and State governments in assisting communities that have been affected by an emergency. SCOPE: Basic legal responsibilities of the Federal and State government in responding to emergencies within jurisdictions and in other jurisdictions via legal agreements; procedures for determining the assistance; types of assistance; role and responsibilities of FEMA and the Governor and key State agencies in disaster response; role of the State government in requesting Federal disaster assistance. METHODOLOGY: Lecture/discussion REFERENCES: Course Student Manual Local Emergency Operations State Emergency Operations Plan Federal Response Plan Federal Emergency Management Agency/Emergency Management Institute SM 3-1