This unit will provide an overview of an integrated emergency management system, and where you fit within the system. 

 

 

After completing this unit, you should be able to:

 

§ Describe the 8 Emergency Management Principles

 

§ Describe the integrated emergency management system and what the system should do.

 

§ Define emergency management concepts and terms.

 

§ Identify the players in the emergency management network.

 

§ Describe the roles of the key players in the emergency management system.

 

§ Identify the location of the emergency management function within their local government.

 

 

 

 

The terrorist attacks of September 11, 2001, illustrated the need for all levels of government, the private sector, and nongovernmental agencies to prepare for, protect against, respond to, and recover from a wide spectrum of events that exceed the capabilities of any single entity. These events require a unified and coordinated national approach to planning and to domestic incident management. To address this need, the President signed a series of Homeland Security Presidential Directives (HSPDs) that were intended to develop a common approach to preparedness and response. The HSPDs include:

 

 

§ HSPD-5, Management of Domestic Incidents, identifies steps for improved coordination in response to incidents. It requires the Department of Homeland Security (DHS) to coordinate with other Federal departments and agencies and State, local, and Tribal governments to establish a National Response Plan (NRP) and a National Incident Management System (NIMS). NOTE: In January 2008, DHS issued the National Response Framework that supersedes the NRP.

 

 

§ HSPD-8, National Preparedness, describes the way Federal departments and agencies will prepare. It requires DHS to coordinate with other Federal departments and agencies—and with State, local, and Tribal governments to develop a National Preparedness Goal.

 

 

§ Together, NIMS, the NRF, and the National Preparedness Guidelines define what needs to be done to prevent, protect against, respond to, and recover from a major event; how it needs to be done; and how well it needs to be done. These efforts align Federal, State, local, and Tribal entities; the private sector; and nongovernmental agencies to provide an effective and efficient national structure for preparedness, incident management, and emergency response.

 

 

 

 

Each day communities respond to numerous emergencies. Most often, these incidents are managed effectively at the local level.

 

However, there are some incidents that may require a collaborative approach that includes personnel from:

 

• Multiple jurisdictions,

• A combination of specialties or disciplines,

• Several levels of government,

• Nongovernmental organizations, and

• The private sector.

 

The National Incident Management System, or NIMS, provides the foundation needed to ensure that we can work together when our communities and the Nation need us the most.

 

NIMS integrates best practices into a comprehensive, standardized framework that is flexible enough to be applicable across the full spectrum of potential incidents, regardless of cause, size, location, or complexity.

 

Using NIMS allows us to work together to prepare for, prevent, respond to, recover from, and mitigate the effects of incidents.

 

NIMS provides a consistent framework for incident management at all jurisdictional levels, regardless of the cause, size, or complexity of the incident. Building on the Incident Command System (ICS), NIMS provides the Nation’s first responders and authorities with the same foundation for incident management for terrorist attacks, natural disasters, and all other emergencies. NIMS requires that ICS be institutionalized and used to manage all domestic incidents.

 

At the policy level, institutionalizing ICS means that government officials:

 

§ Adopt ICS through executive order, proclamation or legislation as the jurisdiction’s official incident response system.

 

At the organizational/operational level, incident managers and emergency response organizations should:

 

§ Integrate ICS into functional, system-wide emergency operations policies, plans, and procedures.

§ Provide ICS training for responders, supervisors, and command-level officers.

§ Conduct exercises for responders at all levels, including responders from all disciplines and jurisdictions.

 

 

NIMS integrates existing best practices into a consistent, nationwide approach to domestic incident management that is applicable at all jurisdictional levels and across functional disciplines. 

 

Following is a synopsis of each major component of NIMS.

 

• Preparedness. Effective incident management and incident response activities begin with a host of preparedness activities conducted on an ongoing basis, in advance of any potential incident. Preparedness involves an integrated combination of planning, procedures and protocols, training and exercises, personnel qualification and certification, and equipment certification.

 

• Communications and Information Management. Emergency management and incident response activities rely on communications and information systems that provide a common operating picture to all command and coordination sites. NIMS describes the requirements necessary for a standardized framework for communications and emphasizes the need for a common operating picture. NIMS is based on the concepts of interoperability, reliability, scalability, portability, and the resiliency and redundancy of communications and information systems.

 

• Resource Management. Resources (such as personnel, equipment, and/or supplies) are needed to support critical incident objectives. The flow of resources must be fluid and adaptable to the requirements of the incident. NIMS defines standardized mechanisms and establishes the resource management process to: identify requirements for, order and acquire, mobilize, track and report, recover and demobilize, reimburse for, and inventory resources.

 

• Command and Management. The Command and Management component within NIMS is designed to enable effective and efficient incident management and coordination by providing flexible, standardized incident management structures. The structure is based on three key organizational constructs: the

 

Public Information.

 

• Ongoing Management and Maintenance.   DHS/FEMA manages the development and maintenance of NIMS. This includes developing NIMS programs and processes as well as keeping the NIMS document current.

 

 

 

 

 

 

 

The Framework is written especially for government executives, private-sector and nongovernmental organization (NGO) leaders, and emergency management practitioners. First, it is addressed to senior elected and appointed leaders, such as Federal department or agency heads, State Governors, mayors, tribal leaders, and city or county officials – those who have a responsibility to provide for effective response. For the Nation to be prepared for all hazards, its leaders must have a baseline familiarity with the concepts and mechanics of the Framework.

 

 

The Emergency Management Standard by EMAP is designed as a tool for continuous improvement as part of a voluntary accreditation process for local and state emergency management programs.

National emergency management and other stakeholder organizations began working on what is now EMAP in 1997 after a presentation on the need for emergency management standards and accreditation at a National Emergency Management Association (NEMA) conference.  EMAP builds on standards and assessment work by various organizations, adding requirements for documentation and verification that neither standards nor self-assessment alone can provide. EMAP consists of:

Agreed-upon national standards (Emergency Management Standard) developed with input from emergency managers and state and local government officials include;

 

The NFPA Standards Council established the Disaster Management Committee in January 1991. The committee was given the responsibility for developing documents relating to preparedness for, response to, and recovery from disasters resulting from natural, human, or technological events.

 

The first document that the committee focused on was NFPA1600, Recommended Practice for Disaster Management. NFPA 1600 was presented to the NFPA membership at the 1995 Annual Meeting in Denver, CO. That effort produced the 1995 edition of NFPA 1600.

 

For the 2000 edition, the committee incorporated a “total program approach” for disaster/emergency management and business continuity programs in its revision of the document from a recommended practice to a standard. They provided a standardized basis for disaster/emergency management planning and business continuity programs in private and public sectors by providing common program elements, techniques, and processes. The committee provided expanded provisions for enhanced capabilities for disaster/emergency management and business continuity programs so that the impacts of a disaster would be mitigated, while protecting life and property. The chapters were expanded to include additional material relating to disaster/emergency management and business continuity programs. The annex material was also expanded to include additional explanatory material.

 

 

For the 2004 edition, the committee updated terminology and editorially reformatted the document to follow the 2003 Manual of Style for NFPA Technical Committee Documents; however, the basic features of the standard remained unchanged. In addition, the committee added a table in Annex A that created a crosswalk among FEMA CAR, NFPA 1600, and BCI & DRII professional practices. The committee added significant informational resources to Annexes B, C, D, and E. The document continues to be developed in cooperation and coordination with representatives from FEMA, NEMA, and IAEM. This coordinated effort was reflected in the expansion of the title of the standard for the 2000 edition to include both disaster and emergency management, as well as information on business continuity programs.

 

The 2007 edition incorporates changes to the 2004 edition, expanding the conceptual framework for disaster/emergency management and business continuity programs. Previous editions of the standard focused on the four aspects of mitigation, preparedness, response, and recovery. The 2007 edition identifies prevention as a distinct aspect of the program, in addition to the other four. Doing so brings the standard into alignment with related disciplines and practices of risk management, security, and loss prevention.

 

The proposed 2010 standards address:

•          Leadership and Commitment

•          Program Coordinator

•          Program Committee

•          Program Administration

•          Performance Objectives

•          Laws and Authorities

•          Finance and Administration

•          Records Management

•          Planning and Design

•          Risk Assessment

•          Incident Prevention

•          Mitigation

•          Planning Process

•          Common Plan Requirements

•          Resource Management

•          Mutual Aid/Assistance

•          Communications and Warning

•          Operational Procedures

•          Emergency Response

•          Business Continuity and Recovery

•          Crisis Communications, Public Information, and Education

•          Incident Management

•          Emergency Operations Centers (EOCs)

•          Training and Education

•          Testing and Exercises

•          Program Improvement

•          Program Review

 

 

 

Depending on your jurisdiction, the changes to the emergency planning requirements may mean little—or a lot. Minimally, the changes mean that your jurisdiction must:

 

§ Use ICS to manage all incidents, including recurring and/or planned special events.

 

§ Integrate all response agencies into a single, seamless system, from the Incident Command Post, through Department Emergency Operations Centers (DEOCs) and local Emergency Operations Centers (EOCs), through the State EOC to the regional- and national-level entities.

 

§ Develop and implement a public information system.

 

§ Identify and type all resources according to established standards.

 

§ Ensure that all personnel are trained properly for the job(s) they perform.

 

§ Ensure communications interoperability and redundancy.

 

Consider each of these requirements in the context of the principles of emergency management as presented in this course.

 

 

 

 

 

When an emergency or disaster occurs:

 

§ Personnel from different agencies, jurisdictions, and governmental levels need to work together.

 

§ Quick decisions are required.

 

To facilitate rapid, efficient emergency operations, a system is required that enables all participants in the incident to work together. An integrated emergency management system is a conceptual framework to increase emergency management capability by networking. That increased capability would not be readily available, especially in a disaster, without establishing prior networking, coordination, linkages, interoperability, partnerships, and creative thinking about resource shortfalls. The system should address all hazards that threaten a community, be useful in all four phases of emergency management, seek resources from any and all sources that are appropriate, and knit together all partnerships and participants for a mutual goal.

 

 

 

 

 

 

For clear reference during the course, however, please use the definitions on the pages that follow.

 

An occurrence of a natural catastrophe, technological accident, or human-caused event that has resulted in severe property damage, deaths, and/or multiple injuries. As used in this course, a “large-scale disaster” is one that exceeds the response capability of the Local jurisdiction and requires State, and potentially Federal, involvement. As used in the Stafford Act, a “major disaster” is “any natural catastrophe [...] or, regardless of cause, any fire, flood, or explosion, in any part of the United States, which in the determination of the President causes damage of sufficient severity and magnitude to warrant major disaster assistance under [the] Act to supplement the efforts and available resources of States, local governments, and disaster relief organizations in alleviating the damage, loss, hardship, or suffering caused thereby.” (Stafford Act, Sec. 102(2), 42 U.S.C. 5122(2)).  

 

 

 

 

 

 

 

Emergency: Any incident, whether natural or manmade, that requires responsive action to protect life or property.   Typically, emergencies can be handled at the local level. 

 

However, under the Robert T. Stafford Disaster Relief and Emergency Assistance Act, an emergency “means any occasion or instance for which, in the determination of the President, Federal assistance is needed to supplement State and local efforts and capabilities to save lives and to protect property and public health and safety, or to lessen or avert the threat of a catastrophe in any part of the United States” (Stafford Act, Sec. 102(1), 42 U.S.C. 5122(1)).  

 

 

 

 

Emergency Management:  Organized analysis, planning, decision-making, and assignment of available resources to mitigate, prepare for, respond to, and recover from the effects of all hazards.

 

The goals of emergency management are to:

 

§ Save lives.

 

§ Prevent injuries.

 

§ Protect property and the environment.

 

 

Hazard:  Something that is potentially dangerous or harmful, often the root cause of an unwanted outcome.  Natural hazards are caused by natural events that pose a threat to lives, property, and other assets. Technological hazards are caused by the tools, machines, and substances we use in everyday life. Intentional hazards, such as terrorism or riots, are deliberately caused by people attacking or damaging what is valuable in a society.

 

 

 

 

Effective response to and recovery from an emergency or disaster requires the active involvement of numerous partners.

 

 

 

Each level of government participates in and contributes to emergency management.

 

§ Local governmenthasdirect responsibility for the safety of its people, knowledge of the situation and accompanying resource requirements, and proximity to both event and resources. Within local government are Emergency Support Services—the departments of local government that are capable of responding to emergencies 24 hours a day. They include law enforcement, fire/rescue, and public works. They may also be referred to as emergency response personnel or first responders.

 

§ Tribal Government - The United States has a trust relationship with Indian tribes and recognizes their right to self-government. As such, tribal governments are responsible for coordinating resources to address actual or potential incidents. When local resources are not adequate, tribal leaders seek assistance from States or the Federal Government.

 

 

§ State governmenthaslegal authorities for emergency response and recovery and serves as the point of contact between local and Federal governments.

 

§ Federal governmenthas legal authorities; fiscal resources; research capabilities, technical information and services; and specialized personnel to assist local and State agencies in responding to and recovering from emergencies or disasters.

 

 

Organizations at all government levels can share their knowledge and resources with nongovernmental service providers. For example:

 

§ At the local level, first-response agencies share information about injuries with local medical providers.  Information about those who are left homeless from a disaster is shared with The American Red Cross and other community service organizations.

 

 

 

§ At the State level, the Governor’s Authorized Representative (GAR) and others share information with State agencies (e.g., Department of Agriculture) and FEMA regional representatives to bring the necessary response and recovery resources to bear on the incident.

 

§ At the Tribal level, the tribal leader is responsible for the public safety and welfare of the people of that tribe. As authorized by tribal government, the tribal leader:

 

 

§ At the Federal level, when an incident occurs that exceeds or is anticipated to exceed local or State resources – or when an incident is managed by Federal departments or agencies acting under their own authorities – the Federal Government uses the National Response Framework to involve all necessary department and agency capabilities, organize the Federal response, and ensure coordination with response partners.

 

 

 

 

Government agencies are responsible for protecting life and property and promoting wellbeing. But the government does not—and cannot—work alone.

 

In all facets of emergencies and disasters, the government works with private-sector groups as partners in emergency management.

 

The term private sector includes nongovernmental organizations (NGOs) that offer critical emergency services, such as The American Red Cross, as well as businesses that have resources to contribute.

 

Together, government agencies and the private sector form a partnership. This partnership begins at the grassroots level, depending on the local and State resources that are in place, to provide the backbone for disaster management. Humanitarian and volunteer organizations also are essential to the team.

 

NGOs collaborate with first responders, governments at all levels, and other agencies and organizations providing relief services to sustain life, reduce physical and emotional distress, and promote recovery of disaster survivors.

 

The National Voluntary Organizations Active in Disasters (NVOAD) is a consortium of more than 30 recognized national organizations active in disaster relief. Such organizations provide capabilities to incident management and response efforts at all levels.

 

 

The private sector (both for-profit and nonprofit entities):

 

§ Bears the greatest casualties and costs of emergencies.

 

§ Provides voluntary expertise and support for emergency management.

 

The private sector makes its concerns known to the government, and holds the government accountable for actions taken or not taken. Regardless of government accountability, communities could not respond to or recover from emergencies or disasters without the assistance of and cooperation from the private sector.

 

 

 

 

Although not formally a part of emergency management, individuals and families play an important role in the overall emergency management process. Private individuals and families can contribute by:

 

§ Reducing hazards in and around their homes. By taking simple actions, such as raising utilities above flood levels or taking in objects that could become projectiles in a high wind, individuals and families can reduce the amount of damage caused by an emergency or disaster event.

 

 

 

§ Monitoring emergency communications carefully. Throughout an emergency situation, critical information and direction will be released to the public via electronic and other media. By listening and following these directions carefully, individuals and families can reduce their risk of injury, keep emergency routes open to response personnel, and reduce demands on landline and cellular communication.

 

§ Volunteering with an established organization. Organizations and agencies with a role in emergency response and recovery are always seeking hard-working, dedicated volunteers. By volunteering with an established voluntary agency, individuals and families can become part of the emergency management system and assure that their efforts are directed to where they are most needed.

 

§ Taking training in emergency response. Taking training in emergency response, whether the training is basic first aid through The American Red Cross or a more complex course through a local community college, will enable individuals and families to take initial response actions required to take care of themselves and their families, thus freeing first-response personnel to respond to higher-priority incidents that affect the entire community.

 

 

§ Community Emergency Response Team (CERT) training is one way for individuals and families to prepare for an emergency. CERT is designed to prepare people to help themselves, their families, and their neighbors in the event of a catastrophic disaster. Because emergency services personnel may not be able to help everyone immediately, people can make a difference by using the training obtained in the CERT course to save lives and protect property.

 

 

 

This training covers basic disaster survival and rescue skills that are important to have in a disaster when emergency services are not available. Some of the topics covered are:

 

 

§ Disaster preparedness—anticipating the impact on an infrastructure, safety precautions during a disaster, and the role of CERTs in disaster response.

§ Basic fire safety—identifying and reducing potential fire hazards, how to evaluate fires, and firefighting resources and techniques (e.g., use of portable fire extinguishers).

§ Disaster medical operations—principles of triage, assessment of injuries, and treatment.

§ Light search and rescue operations—priorities and resources; lifting, cribbing, and victim removal; and rescuer safety.

§ Disaster psychology team organization—the psychological impact of a disaster on rescuers and survivors, and how to provide psychological “first aid.”

 

Additional courses of interest are available through FEMA’s Emergency Management Institute home study program (http://training.fema.gov/EMIWeb/). Your State may also offer training opportunities through its Emergency Management Agency.

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Answers

 

1.    b

2.    e

3.    d

4.    a

5.    c

 

 

 

 

Resources for an integrated emergency management system include both personnel and equipment.

 

Personnel resources in your area include:

 

§ Elected and appointed officials and executives.

 

§ Emergency program managers.

 

§ Emergency operations staff.

 

§ Police and fire departments.

 

§ Other local service providers, such as the local council on aging and public works agency.

 

§ Voluntary organizations such as The American Red Cross and The Salvation Army.

 

 

An integrated emergency management system links these personnel resources through:

 

§ Planning.

 

§ Direction.

 

§ Coordination.

 

§ Clearly defined roles and functions.

 

 

A successful emergency management program facilitates the development of a network of relationships among local officials and staff that understand their roles and are able to act when needed.

 

The organizational placement of emergency management affects the way that relationships are developed.

 

 

 

 

Where is the emergency management function in your local government’s organization chart? Some options include placing it within:

 

§ A separate organization that reports directly to a governing or executive body.

 

§ The fire/rescue department.

 

§ Law enforcement, located in a police department or sheriff’s office.

 

 

 

An advantage of working within a separate organization is that the perception of bias is minimized. The emergency management function may become more visible and have increased access within local government.

 

A disadvantage of working within a separate organization is that the emergency management staff must work to build rapport and avoid becoming isolated. 

 

 

These agencies are among the traditional first responders to emergencies and disasters, so placing the emergency manager within a first-response agency is logical.

 

An advantage of working within a first-response agency is that being close to the day-to-day operations of law enforcement or fire personnel builds personal relationships that pay off in coordination when developing and maintaining an emergency management program.

 

A disadvantage of working within a first-response agency is that association with one or another of these basic services may hamper coalition-building efforts if others perceive the emergency management staff as owing allegiance to its own service.

 

 

 

 

 

1.    The local emergency management function is located (organizationally):

 

 As part of the fire department.

 As part of law enforcement.

 As an independent agency.

2.    Who is the local emergency manager?

3.    To whom does the emergency manager report? 

4.    What are the advantages and disadvantages of this reporting relationship? Also, think about recent emergency responses. How do you think the emergency management’s organization facilitated that response?

 

 

Carefully read each question and all of the possible answers before selecting the most appropriate response for each test item. Circle the letter corresponding to the answer you have chosen.

 

1.    A(n)_______________is defined as a dangerous event or circumstance that has the potential to lead to an emergency or disaster:

 

 

2.    In emergency management, personnel are considered one type of resource.

 

 

3.    One goal of emergency management is to:

 

 

4.    A local emergency manager and staff often serve as a function of which department in the local government?

 

 

5.    An emergency management program will work well in practice if most emphasis and attention focus upon ___________________.

 

 

 

Answers to Questions

1.    a

2.    a

3.    d

4.    d

5.    b