EMERGENCY MANAGEMENT FOR ELECTED OFFICIALS

Transcription

1 EMERGENCY MANAGEMENT FOR ELECTED OFFICIALS

2 Table of Contents Purpose...ii Emergency Management and Elected Officials.....iii Chapter 1 Pre-Disaster Emergency Functions Organization... 1 Emergency Management Coordinator... 2 Office of Emergency Management....3 Private Sector Voluntary Organizations 6 Disaster Types....8 Hazard Assessment...13 Hazard Mitigation.15 Comprehension Emergency Management Plan..18 Chapter 2 Emergency Operations Emergency Operations Center.. 22 Communication.25 Mutual Aid Agreements 28 Exercise Program..30 Chapter 3 Post-Disaster Recovery Recovery Operations.34 Declarations Process.37 Disaster Functions.39 i

3 Purpose The purpose of this manual is to give guidance to elected officials as to their roles and responsibilities before, during and after a disaster. The majority of information for this manual was obtained from various courses developed by many curriculum advisory committees at the Emergency Management Institute in Emmitsburg, Maryland and in the United States Conference of Mayors entitled: Emergency Management: A Mayor s Manual. ii

4 Emergency Management and Elected Officials When disaster strikes a community, the elected officials immediately become the focal point for decision-making leadership. Their success rests upon the effectiveness of the community s emergency management system. Comprehensive emergency management is a system that integrates and coordinates vital city/county agencies and resources into a program of mitigation, preparedness, response and recovery for natural, technological and national security disaster events. The establishment of a comprehensive emergency management system requires a process that: Determines hazards Analyzes risks and vulnerability Identifies available resources Determines shortfalls Defines roles and responsibilities Insures strict coordination and communication between all entities. The essential element in development of an emergency management system at the local level is the support of the elected officials. Although chief executives are not involved with the day-to-day activities of the program, it is only with elected official direction and support that the program can be effective. Knowledge of this commitment from our public officials will also bring iii

5 substantial support from private industry, volunteer agencies and the public. A comprehensive emergency management system does not require mammoth allocations of city/county funds. Because it is a management process, the program strives to utilize existing resources in a more efficient and effective manner, rather than to seek more resources and generate new programs. A key element in the emergency operations of a community is designation by the elected officials of an Emergency Management Agency (EMA) / Homeland Security Coordinator. In non-emergency times, the coordinator interacts with city/county departments, the private sector, state and federal agencies, volunteer agencies and the public to develop an efficient emergency management system. In times of disaster, the coordinator is the chief advisor to the mayor/commissioners; supports the efforts of line agencies i.e., police, fire, law, EMS; and conducts liaison with the private sectors and volunteer agencies. The person designated as the EMA / Homeland Security Coordinator must have the ability to deal effectively with department heads, conduct a hazard analysis, develop an emergency operations plan, mobilize key personnel and equipment during an event an become thoroughly familiar with State and Federal assistance iv

6 programs which can be implemented before, during and after a disaster. Experience has shown that a professional EMA / Homeland Security Coordinator, with the support of the chief elected officials, are often, the determining factor in the successful resolution of a disaster. A comprehensive emergency management program is all-hazard, all-phase. Allhazard in that it addresses natural, technological and national security emergencies; all-phase in that it addresses mitigation, preparedness, response and recovery. Mitigation activities lessen the effects of or prevent probability of damages occurring during disasters. Mitigation actions can take the form of regulations, city ordinances, or stricter enforcement of zoning requirements and building codes. An example of mitigation would be prohibiting construction in areas that have flooded or are located in the flood plain. Although mitigation efforts may require expenditure of funds, a productive activity can result in large savings in future years. Chief Elected Official Priorities Establishment of an Emergency Management Advisory Council IC (b) (1) Establishment of a department of Emergency Management including v

7 the appointment of an Emergency Management Coordinator. IC (d) (2) Take necessary action to make, amend and rescind such orders, rules and regulations for emergency management. IC (a) Take necessary action to appropriate, expend funds, make contracts and distribute equipment necessary for emergency management. IC (j) (1) Take additional measures, disaster studies and recommendations for emergency management Preparedness readies local government to respond to natural, technological and national security events. A response plan for a disaster cannot be developed during an emergency. A community plan must be developed in advance for the coordination and integration of vital agencies and resources during a disaster. Effective preparedness will assure elected officials that local government can respond to the greatest extent possible to save lives and property in time of emergency. Chief Elected Officials Priorities Take necessary action to prepare and keep current a local or interjurisdictional disaster emergency plan for its area. IC (h) vi

8 Take necessary action to prepare and distribute to all appropriate officials in written form a clear and complete statement of the emergency responsibilities of all local agencies and officials and the disaster chain of command. IC (I) Response that is successful depends on effective implementation of emergency operation activities developed during the planning phase. During the emergency, the first responder who has the capability and mission to contain, mitigate or resolve the event, has declared that the scope of event is beyond his/her capability, or is a pending threat to community, immediately notifies the officials i.e., Mayor, Commissioner. When responding to a disaster, elected officials in concert with the EMA / Homeland Security Coordinator, take the leadership role in directing response efforts. Through this leadership, vital decisions affecting the community can be made immediately and carried out by the emergency management organization. As the chief elected official of the community, the Mayor/Manager has the authority and public support to enact life saving measures during a disaster and the ability to communicate information necessary to the security of the residents. vii

9 Chief Elected Official Priorities Take necessary action to declare a local disaster emergency if a threat is imminent. IC IC Take necessary action to appropriate, expend funds, make contracts and distribute equipment necessary for emergency management. IC (j) (1) Recovery operations are put into effect when the criticality of the event has abated. During this period, programs to return the community/county and its residents to predisaster conditions must be implemented. In addition, the Mayor/Manager and the city s chief policy makers must make important decisions relating to long-term repair and rebuilding programs for damage caused to public and private property. Chief Elected Official Priority Take necessary action to appropriate, expend funds, make contracts and distribute equipment necessary for emergency management. IC (j) (1) 1. Temporary Sheltering 2. Emergency Food and Water 3. Health and Safety viii

10 The necessity for elected official direction runs through all four phases of a community s comprehensive emergency management program. The elected official s commitment, initiation of the program and continued support are the vital ingredients needed to insure the coordination of personnel and resources so that emergencies will be resolved in an effective and economic manner. ix

11 Chapter 1 Pre-Disaster Emergency Functions Organization A disaster is defined as any extraordinary event that disrupts the normal day-to-day operations of local government and depletes the community s resources. Disasters are typically classified as natural, technological, and national security. Natural disasters such as flood, earthquake or tornadoes are emergencies with which cities are generally familiar. National security issues such as weapons of mass destruction scenarios must be addressed because of their potential devastation. Technological disasters such as hazardous materials spills, transportation accidents, and civil unrest pose the greatest threat to communities because of their complexity and the suddenness with which they strike. When disasters, of any type strike a community, the lives of residents are immediately in danger and local agencies are called on to respond. In order to assure a prompt and effective response, local departments must work as one, usually on very shout notice. A successful response to emergencies at the local level depends on the efficient functioning of the community s emergency management organization. An organizational approach to disaster management cannot be developed during a 1

12 disaster. Roles and responsibilities of local departments and personnel must be detailed and fully understood in advance of an actual emergency. Emergency Management Coordinator The first steps elected officials must take in establishing an emergency management organization are to appoint an Emergency Management Agency (EMA) Homeland Security Coordinator and to designate a local agency to be responsible for all areas of emergency operations. Clear delineation of the elected officials authority to be vested in the emergency management coordinator is vital. This person should be given the authority to coordinate the appropriate local departments as they relate to disaster mitigation, preparedness, response and recovery. The title coordinator cannot be overemphasized because the person should not have the authority to direct the activities of local departments, but rather, to facilitate the development of interagency emergency management efforts. The chief duties of the emergency management coordinator include: Assisting department head in developing operational plan and procedures for their agencies Integrating and coordinating the operating procedures of all local departments 2

13 into an overall emergency management system Severing as a key advisor to the elected officials during disasters Acting as liaison to state and federal disaster agencies Office of Emergency Management Although it is desirable to have a separate office of emergency management headed by the emergency management coordinator, many jurisdictions choose to place the responsibility in an existing department such as police, fire, or public works. If the decision is made to designate an existing local agency, it is important that the emergency management function be a visible entity within the department. Public recognition by the elected officials of the importance of the emergency management office will facilitate easy identification and interaction with the office by local personnel, the media, and the public. Participation of City Departments Even though, the most visible agencies in disaster operations are police, fire, medical and public works, there is a role for every agency in an effective emergency management system. During the time of an actual disaster, the chief elected official will 3

14 need legal and financial advice and information relating to housing, social services, and personnel. It is important that the potential contributions of all agencies be identified and that the departments are included in the emergency management organizations. Key Elements of an Emergency Management Organization Public acknowledgment by the elected official that emergency management is an important priority of city government and that programs designed to mitigate and respond to disasters will be supported by the elected official s office. Granting of authority to an emergency management coordinator and the designation of a single agency to coordinate the mitigation, preparedness, response, and recovery functions of community agencies. Involvement of all departments in the emergency management system. Resources Indiana Department of Homeland Security offers a program of to 50% match for personnel costs associated with emergency management activities. 4

15 Private Sector An important supplement to a community s emergency management organization is the participation of private sector and voluntary organizations. Individuals that conduct business in the community, even if they are not residents, have a vital interest in the ability of their community to respond to disasters. Elected officials are important facilitators in the integration of private resources into the community s emergency management system, as is the Board of County Commissioners for county resources. As chief elected officials, they are most qualified to communicate the community s commitment to a comprehensive emergency management program and request the assistance of outside groups in emergency management activities. When situations such as power outages or natural-gas line breaks occur, the city/county must be in close contact with the utility company or private industry that is also responding to the disaster. This type of coordination cannot be accomplished during the emergency but must be prepared for in advance of the disaster. Appropriate agencies in this category include: Gas and electric companies Telephone companies Transportation agencies: Trailways and Greyhound bus lines 5

16 Rail carriers Chemical companies Construction companies Voluntary Organizations Another source of invaluable and usually free assistance is private, volunteer and charitable institutions such as the American Red Cross, Salvation Army, and Indiana Voluntary Organizations Active in Disasters (INVOAD). Because these organizations assist in mass care, feeding, clothing and housing of victims of disasters, they can remove a great burden from city/county government during an emergency by being very responsible for shelter and housing relocation operations. However, to be effective, these activities must be coordinated in advance. Written agreements are a good way to assure that private Industry and volunteer groups are part of the emergency management network. These agreements are the product of meetings, where private sector resources are identified and agreement is reached on how they can be integrated into the community s emergency management organization. Once agreements are signed, they can automatically go into effect upon notification of an emergency by the community s emergency management coordinator. In this way, the community gains important resources and saves valuable time during an actual disaster. 6

17 To insure that private organizations fully coordinate with community, many jurisdictions establish an emergency management committee, which meets monthly and has a representative from each city /county department and private industry involved in emergency organization and operations of city/county. This group will set and review priorities, as well as keeping up-to-date on resources available from each participating agency. Ideally, the initial meeting of the group includes the chief operation officer of each public, private and voluntary organization. The original representative or a designee should attend subsequent meetings. Because accurate reporting and publicity on a community s emergency management program is important before, during and after a disaster, it is sound practice to include the media in the emergency management organization. By becoming familiar with emergency process, members of the press can assist elected officials in communicating important information to the public during an emergency and give citizens better insight into the workings of their emergency management program. Key Elements of Utilizing Private and Voluntary Organizations Identify agencies that can assist government in emergencies. 7

18 Develop written agreements of cooperation and coordination with these groups. Use these agreements to complement emergency management operations by integrating them into the organization whenever possible. Resources Mayor Commissioners EMA / Homeland Security Coordinator Sheriff Director of Public Health and Hospitals Director of Red Cross Chief of Fire Service Director of Public Works Director of Water Departments Director of Transportation Power Company Media Representative from military base Representatives of religious organizations Manager of Telephone Company Power Company Disaster Types Before discussing the steps necessary to implement comprehensive emergency management at the local level, it is necessary to understand the types of disasters that may confront a community. Natural, technological or national security threats can strike any community, any time. 8

19 These risks mandate inclusion of an allhazards approach in the development of an emergency management system. Natural Disasters Although some types of natural disasters are indigenous to certain geographical areas, they can and do occur in areas where they are much unexpected. For example, a common misconception is that earthquakes are a phenomenon of the Pacific Coast, especially California. Most of the nation displays some risk of seismic disturbance no one state is exempt from earthquake tremors. The most common natural disasters affecting the U.S. are: Floods Hurricanes Snow/ice storms Tornadoes Drought Earthquakes Subsidence Forest/wild land fires Floods are the most widespread natural hazard in the country. Nearly every county faces the possibility of flood. Floods also account for the largest annual property loss of any natural disaster. High winds also affect the entire United States, Indiana being no exception. Tornadoes occur in the Midwest and severe 9

20 windstorms are prevalent on the Great Plains and in the West. Heavy snow is extremely common in the Northeast, northern plains, and Midwest and Northwest. Although less common, snowfall occurs in southern sections of the country, as well. No area of the country is immune to natural disasters and most areas face multitude of natural disaster possibilities. Technological Disasters In recent years, the incidence of technological disasters has risen dramatically at the local level. These disasters can affect all cities regardless of size or geographic location. They include: Utility failures Fire and arson Major Transportation accidents Pollution Epidemics Hazardous materials spills Resource shortages Major strikes Civil disturbances Energy emergencies Radiological events Communication failure 10

21 Technological disasters are difficult to prepare for because, as in the case of a city/county wide blackout or major fire, they can strike without warning and their impact n a community is often unpredictable. In addition, as incidents of collective violence and municipal strikes become more common, elected officials are increasingly forced to consider not only their emergency management responsibilities, but also the social, economic, and political consequences of their actions. A situation, which should be of concern to all elected officials, is the problem posed by the transportation of hazardous materials, including those involving radioactive substance. Presently, over 4 billion tons of hazardous materials are being shipped throughout the United States each year. As transportation crossroads for highways, railroads, air routes, and waterways, communities are exposed daily to the dangers of transportation of hazardous materials, and in the event of accident, their emergency services must respond. Additionally, though it is rarely highlighted in the press, the loss of life caused by fire is approximately 20 times greater than the average number of deaths annually caused by all natural disasters combined. Fire produces over 8,000 deaths, more than 100,000 injuries and over $20 billion in destroyed property each year. 11

22 National Security and Nuclear Incidents Elected officials must recognize national security threats and nuclear incidents as having a potential impact on the community. In the event of weapons of mass destruction threat, local government must take action to protect the lives of its citizens and to coordinate a relocation program with Federal and State levels of government as well as with neighboring jurisdictions. Some communities also face the risk of a nuclear power plan incident. There are 71 nuclear reactors licensed to operate in the United States, and an additional 92 under construction. A majority of the present and proposed plants are near large cities. Should an accident occur at one of these facilities, the Chief Elected Officials must be prepared to implement measures to protect the lives and safety of county residents. The list of disaster possibilities is long and growing longer. In the present period of scarce city resources, it is virtually impossible to develop separate emergency plans and capabilities to deal with each potential disaster. When the magnitude of disaster spreads beyond the capability of the first responder (fire, law, medical) to resolve the situation effectively, the elected official s will be called upon to lead the expanded government and emergency services team. 12

23 A single comprehensive emergency plan that coordinates the roles and activities of the involved department can give the elected officials a reliable and realistic approach to successful emergency management at the local level. Hazard Assessment Before the development of an emergency management operations plan can be initiated, an analysis of each potential disaster that could affect the community must be conducted. Each department and those private industries with inherently dangerous products or operations should participate in this activity. It is essential that all potential natural, technological, and national security threats be considered in assessment of hazards, affecting the community. Recent experiences of heavy snow storms in southern states and earthquakes occurring around nuclear power plants in New England serve to reinforce the importance of a hazard assessment that address all potential disasters. The basic steps in a community s hazard analysis include: 1. A compilation of past disasters affecting the area. Included in this review would be the severity of the emergency, loss of life, and estimate of the cost associated with the incident. 13

24 2. An analysis of potential disasters that have not affected the area in the past. This process would address for example, potential airport incidents, chemical explosions, air and water pollution and civil disturbances. This analysis, while concentrating mostly on potential emergencies within county boundaries, must also look at surrounding jurisdictions for possible occurrences that would affect the county. For example, an accident at a refinery location four miles west of the city could force evacuation of city residents. 3. The final step in a hazard assess is the plotting of potential disasters on a map of the county. This procedure provides emergency management officials with a complete overview of the community s disaster possibilities and identifies areas with a greater likelihood of incident. The map, which should be updated annually, is an important tool in the development and coordination of emergency management operations plans. Key Elements of Hazard Assessment Identifying past and potential natural, technological, and national security disasters, both in cities and surrounding areas. Plotting areas of potential disaster vulnerability on a county map. 14

25 Implement a program to mitigate the effects of potential disasters. Resources Indiana Department of Homeland Security provides on-site technical assistance in the area of hazard assessments. The Regional office of the Federal Emergency Management Agency will provide background information on federal resources in the area of hazard mitigation. The National Flood Plain Management program works with local communities to improve their capability in effective flood plain management. Hazard Mitigation The period following the completion of a community s hazard assessment is an opportune time for the Chief Elected Officials and community officials to examine a program of hazard mitigation. Such a program investigates methods by which the effects of identified potential hazards can be lessened in the event of a disaster. Activities that can be included in a program of hazard mitigation include the following; Vulnerability analysis considers the probability of a hazard occurrence with various intensities and compares it to the 15

26 potential impact of these hazards on structures and county residents. Cost benefit analysis review the cost of various mitigation measures and compares them to the cost of potential damages from a disaster that could have been prevented or lessened by a mitigation program. Research conducted on methods employed to mitigate disasters, especially methods utilized in jurisdictions of similar size, will the community to assess the resources necessary for the implementation of such a program. Planning will allow communities to prioritize hazard areas so that mitigation activities can be implemented in a logical manner. Codes and ordinances are often the most effective tool to implement program hazard mitigation. Measures such as flood plain management and strict enforcement of building codes allow communities to utilize their statuary and regulatory authority to implement hazard mitigation programs. In addition, financial incentives (tax breaks, land use, variances, etc.) And disincentives (licensing fees, user fees, etc.) can be employed to attract support for mitigation efforts or to increase the financial burden of no cooperation. 16

27 Monitoring is essential after a program of mitigation has been implemented. Enforcement of laws and regulations in inspection of actions related to the hazard are necessary to determine both changes in the hazard and any violation of established rules or practices. Public education programs are utilized to disseminated information to the public regarding particular hazards and mitigation efforts. Clear and concise information will allow residents to understand the nature of the hazard and to learn the details of the community s mitigation program. Hazard mitigation should be a joint undertaking between city/county government and the private sector, because both benefit from the successful mitigation of hazards. A commitment to such a program can turn potentially devastating disaster into a manageable one, saving property, public and private resources, and most importantly, lives. Key Elements of Hazard Mitigation Identify all hazards that exist for the area. Develop and implement programs to lessen the effect of potential disasters. Monitor the ongoing effectiveness of the mitigation program. 17

28 Resources The Federal Emergency Management Agency and Indiana Department of Homeland Security will assist towns/cities/counties in their mitigation activities. Comprehensive Emergency Management Plan The key to dealing effectively with a natural, technological or national security event is the efficient and coordinated response of a community s emergency management organization. The basis for this response is the emergency operations plan. It is essential that the plan have the full support of the elected officials and be completely familiar to all public agencies and private organizations that respond to disasters. There is no single format preparing the basic emergency operations plan. There are, however, general guidelines utilized by states in assisting local governments in the development of their plans. FEMA/Homeland Security s publication, The Guide for all-hazard Emergency Operations Planning (SLG101) recommendations on local emergency planning, including sample emergency operations plans. An outline of the basic areas to be addressed in an emergency operations plan follows. 18

29 The emergency plan cannot be prepared by one individual or department, the full participation of all departments, private industries and volunteer groups is essential to insure the development of an effective plan that will, in time of emergency, be used by all responding departments and organizations. The EMA / Homeland Security Coordinator should be given authority to coordinate the planning of all appropriate entities. An emergency management committee is an excellent vehicle for the organizational development of the basic plan. Because this group represents all public and private operating and support agencies, the formulation of the plan by this body should insure the best possible delineation of roles and responsibilities and coordination of activities. At the initial meeting of the emergency management committee, the elected officials should request that representatives return to their agencies and develop a report on: (1) their general emergency response capabilities, (2) available personnel and their expertise, (3) equipment and other resources that will be available to respond to a disaster and (4) operational capabilities, annexes, and standard operating procedures (SOP s) for each disaster outlined in the community s hazard assessment. The information is then submitted to the EMA / Homeland Security Coordinator, 19

30 who synthesizes the information into a draft of the basic emergency operations plan, with emergency support functions for specific agency responsibilities in the disasters identified in the hazard assessment. In addition to the plan, a listing of resources and key personnel (with work and home telephone numbers) is prepared and attached as an appendix to the plan. The completed draft plan should be circulated to committee members for comment. The EMA / Homeland Security Coordinator should attempt to incorporate suggestions into the final draft and present it to a full meeting of the committee. At this meeting, decisions must be made on any problems or disagreements that committee members have with the plan. The elected officials make the finial decision on any problems the committee members has over roles, responsibilities, or procedures contained in the plan. When final agreement is reached, each member of the committee should sign the plan. By this action, each representative agrees to abide by the decision of the group, and in an emergency, the plan will be the definitive guide for operational response. Key Elements in Developing a Comprehensive Emergency Management Plan Delineate roles and responsibilities of public and private agencies. 20

31 List all available personnel and all public and private resources available during a disaster. Support by all public and private agencies to support the plan. Resources The IDHS is available to guide communities through the development of the CEMP. 21

32 Chapter 2 Emergency Operations Emergency Operations Center The Emergency Operations Center (EOC) is the decision-making focus of the community s emergency response program. It is also, where liaison activities with State and Federal government disaster agencies are carried out. The EOC should be located in a secure facility, which is easily accessible to the elected officials, department heads, and key decision makers in the local emergency management system. The EOC should be equipped with (1) communication equipment, (2) maps of the community and surrounding areas, (3) emergency power sources, and (4) a physical set-up that allows the elected officials to interact with heir decision makers and allows the later to communicate among them with a minimum of confusion. If the emergency is of lengthy duration, the EOC may require food and sleeping capabilities. Additionally, a national security event brings unique requirements. The EOC should be protected from the effects of hazardous materials and have the equipment and supplies necessary for self-contained operations. People working at the EOC must be limited to the highest level of emergency personnel and department heads. This usually includes: 22

33 The commissioners/mayor Emergency Management Coordinator Police and Fire Chiefs Director of Public Works Private utility representatives American Red Cross National Weather Service Communications Officer Public information Officer The majority of EOC members are directing the operations of key departments and coordinating their activities with other departments and agencies represented in the EOC. Because those represented are decision-makers they are able to receive information from their personnel, report it to the elected officials and the command group, and their decisions to the line agencies for action. The strict coordination of response actions between city departments insures, to the greatest extent possible, an effective response to the disaster. The EOC serves as an important communication vehicle for departments. For example, a tornado causing communitywide damage may also cause a blackout. A report of the blackout should be made the EOC so that a decision on the deployment of security forces can be evaluated. If the EOC decides that such action is needed, the order to activate personnel can be communicated directly to appropriate city agency. The key 23

34 to the effective resolution of any disaster is to get vital information to the elected officials so they can make decisions and implement emergency procedures in a coordinated and effective manner. Often, an isolated disaster, such as fire, a hazardous material spill or a transportation accident occurs in a section of the community at some distance from the EOC. Many jurisdictions choose to establish a command post at the actual disaster site. This allows the incident commander to assess first hand the extent of the disaster and to implement necessary measures to respond effectively. Temporary command post can be established in schools, public buildings or mobile equipment. The key element, as in the centralized EOC, is to establish a system of communication between chief policy makers and department personnel involved in disaster response. Local communication equipment, supplemented by Hams Operators, can establish the communication network. In addition, a prior arrangement between the community and the telephone company for installation of telephones at the scene of the disaster is often essential Key Elements to Establish an Emergency Operation Center Designate area with equipment and communications systems necessary to direct and coordinate disaster response. 24

35 Participation by elected officials, EMA/Homeland Security Coordinator, and department heads. Coordinate all policy decisions and public information through the EOC. Resources The IDHS can assist in the development of an Emergency Operation Center. Communication The cornerstone of an effective emergency management is a successful system of communication in any emergency system is: 1. Communication between departments and private organizations. 2. Communication with the public. Interdepartmental Communications In a disaster, all activities, which will shorten the lines of communication, should be employed. The communication system has its base in the systems of such departments as police, fire and public works. These are supplemented by radio frequencies of the office of emergency services. Additional communications assistance can be obtained with private communication systems such as Amateur Radio or Ham Radio. 25

36 Agreements for use of private equipment and operators must be negotiated in advance, and the procedures by which these organizations supplement city/county efforts should be outlined in the annex to the Emergency Operation Plan. To shorten and simplify the lines of communication, each department should use its day-to-day system to conduct that aspect of the response action in which it is involved. To facilitate both communication and decision-making, all requests for assistance between agencies or requests for decision-making should be channeled through the Emergency Operations Center. In the event of an emergency, the community s communication system alerts personnel listed in the Emergency Operations Plan that they should report to their departments for duty. The notification also includes appropriate private sector personnel and members of voluntary organizations. Communication with the Public There are two basic components of pubic information during a disaster: Warning that a disaster is eminent, and 26

37 Information essential during the disaster for public safety and reporting purposes. Many communities have warning systems in place for tornadoes or severe weather. For these systems to work properly it is essential that they be tested often and that the public be informed on all aspects of the alert process. During an actual disaster, the information emanating from the Emergency Operations Center to the public will have a dramatic impact on the lives of the community s residents. Thus, it is important that the elected officials and come from a single spokesperson clear all public statements. The importance of utilizing a single spokesperson (when the elected official is not delivering statements personally) cannot be overemphasized. During disaster, there is a constant clamor for news and information. Utilizing a single spokesperson in the EOC reduces the possibility of confusion and inconsistency. During a disaster, the public needs information from the elected officials or a designated spokesperson. It may also be advantageous to establish a rumor control center with a number of extra telephone lines for use by the public. Experience in emergency proves that unfounded rumors spread quickly and may lead to premature actions by citizens or cause panic. The effect of these rumors may seriously interfere with emergency operations. 27

38 Key Elements of an Effective Communications System Identify lines of communication within agencies and supplemental systems located in private industry and volunteer organizations. Simplify and shorten lines of communication and coordinated decisionmaking communication with the EOC Use only one spokesperson for public statements. Establish a rumor control center. Resources IDHS will assist in the establishment of an emergency communications system. Mutual Aid Agreements It is possible that a severe disaster will require a response that goes beyond the emergency capabilities of a community. In this event, a community requires additional assistance, usually on very short notice. Mutual aid agreements between communities are an excellent tool to inure those supplementary personnel and resources will be available. Mutual aid agreements between jurisdictions arrange for support assistance during emergencies. They can between individual 28

39 departments, such as fire departments I neighboring communities, or they can be broader all-purpose agreements negotiated by attorneys representing the tow or more jurisdictions. Such agreements call for assistance to respond to any type of disaster firm all appropriate government departments, including fire, law and any other involved agencies. In this type of arrangement, just as in an agreement between the individual agencies of separate jurisdictions, certain important issues are best negotiated and settled upon prior to implementing a mutual aid agreement: How far beyond the home jurisdiction or how far into a neighboring jurisdiction can resources be permitted to go? Who will have the authority to make decisions regarding resources and personnel that come into a jurisdiction from another jurisdiction? Who is a liability or insurance agreement can be established to deal with accusations of damage? How will volunteers be covered by mutual aid agreements for insurance and liability? Elected officials play a key role not only in the decision to enter into an interjurisdictional agreement, but also in approving the provisions of the agreement. Many communities presently have 29

40 handshake agreements between the chief elected officials for assistance during a disaster. This procedure however is subject to the vagaries of politics, the elective process, and stress brought on by a sudden emergency. It is important that mutual aid be a constant resource, which every community can rely. Only written agreements provide this constancy, and they should be a vital part of a community s emergency management program. Key Elements of Mutual Aid Agreements The agreement should be written. This procedure eliminates confusion and addresses legal problems that may arise. The agreement should outline each service to be provided and any conditions imposed on the delivery of the services. Procedures should be established in advance for coordination, direction, and control of each jurisdiction s response during a disaster. Exercise Program An emergency management exercise programs serves many important purposes for a community s emergency management organization. It is a training tool for emergency response personnel; it is, except for a real disaster, the most effective test of a community s emergency operation plan; and finally, it educates citizens to the emergency 30

41 preparedness and response programs of local government. An exercise can take two forms. First, it can be an on-site exercise where local personnel respond to the scene of a hypothetical emergency. In this instance, all public, private, and volunteer agencies that participate in emergency operations respond to the simulated disaster just as if it were a real emergency. It is important that all department heads and the elected officials assume the same roles they would have in an actual disaster. By employing this approach, local agencies get hands-on experience in coordination their activities with various departments, hospitals, and volunteer organizations. In addition, a simulated disaster exercise allows community residents (usually students of local schools) to take part in the exercise by acting as injury cases in need of rescue, medical attention, and transportation to hospitals. The on-scene exercise also allows local resident to understand the mechanics of emergency response operation and see firsthand a community s capability in responding to such disaster. The second type of exercise is the tabletop format. This exercise takes place in the community s emergency operations center. The exercise is composed of a written scenario of events, carefully planned to test various aspects of the emergency management system. As the disaster 31

42 unfolds, the elected officials who participate are required to make policy and operational decisions utilizing local resources private sector assistance, and voluntary agencies in responding to the disaster. The exercise is designed to test the coordination, communication and decision making capabilities of local departments that are essential for successful emergency response. Again, it is critical that the elected officials and key local officials such as the police chief, fire chief, and director of public works participate in the exercise because they are the people who will be called upon to make decisions when the real event takes place. An evaluation should be conducted after the disaster exercise. A critique is made of the overall knowledge of roles and responsibilities, coordination between local departments, the adequacy of the emergency management system, and the effectiveness of the participants response. The result of both types of exercises and the critiques is that the elected officials and emergency management personnel will have a clear indication of the effectiveness of their emergency operations plans, can identify deficiencies in the plan, and can revise and strengthen the existing plan to meet future disasters. Key Elements in Exercises The exercise program must have the involvement of the elected officials, key 32

43 private organizations, city/county officials and representatives of all public, private, and volunteer agencies involved in the emergency management system. Any exercise should be handled as an actual disaster and be viewed as a real test of the community s emergency management response capabilities. An evaluation of the exercise should be conducted to point out deficiencies in the emergency operations plan that need to be corrected and improvements that can be made in the overall emergency management system. However, quite to the contrary, the exercise is the beginning of a process, which will take a basic plan and strengthen it into a vehicle to be used with the utmost confidence in responding to disaster situations. Oftentimes an exercise is seen as the final phase of a community is planning effort in the emergency management area. However, quite to the contrary, the exercise is the beginning of a process, which will take a basic plan and strengthen it into a vehicle to be used with the utmost confidence in responding to disaster situations. Resources The IDHS can provide direct assistance to communities for exercise development, conduct and evaluation. 33

44 Chapter 3 Post-Disaster Recovery Recovery Operations Recovery operations constitute the final phase of the emergency management process. This period is often a critical time for elected officials because of the number of decisions affecting the community that have to be made. As with mitigation, preparedness, and response a planning process for the recovery phases must be instituted before the onset of disaster. Recovery from a disaster must be viewed in both the short and long terms. Immediately following the emergency, there is a need to stabilize the community; insure public order and security; provide food, shelter and clothing for affected residents; and implement search and rescue activities, if needed. Secondly, vital local services such as water, power, medical care, and transportation must be restored if these areas have been disrupted, and a debris removal program must be implemented. As soon as possible, a damage assessment should be conducted to determine the structural should be conducted to determine the structural damage to public and private buildings and homes, to monetary cost to the community and the community s 34

45 qualification for Federal disaster relief or, if appropriate, federal flood insurance benefits. The short-term goal should be return the community to pre-disaster conditions as soon as possible. This activity should be coordinated through the agencies represented on the local emergency management committee and with resources provided by the Sate and Federal government, if appropriate. Upon completion of short-term recover, the elected officials must decide if they wish to develop a plan for long-term recovery. Issues to be addressed would include the following: Should normal or extraordinary decisionmaking mechanisms be used in deciding how, when, and where to rebuild the city? Should there be changes in land use? Should the building code be changed? Should the community be made more efficient and attractive? How should disaster-produced personal and family problems be handled? How should recovery expenditures be financed? What mitigation measures could be taken to prevent or mitigate future disasters? 35

46 Essential to any long-term recovery program is the inclusion of mitigation activities. After a disaster has occurred, it is important to ascertain the cause and identify any measures that can be implemented to reduce or eliminate the effects of a similar disaster in the future. The long-term recovery program is important to the community and its residents, and implementation of an effective mitigation program during this period can spare the community future damage and destruction from similar disasters. A long-term recovery program often requires the formation of a committee or separate organization to direct the efforts. The committee might be composed in whole or in part of members of the emergency management committee and would most likely include all elected officials, city officials, and representatives of private industry and the community. Because a major disaster affects all aspects of community life, a comprehensive publicprivate approach throughout the postdisaster period, initiated by the elected officials is the most effective vehicle to return the city to pre-disaster conditions. When these decisions have been made, the community has addressed the recovery process both in the long and short term. In so doing, it has also taken some major steps toward mitigation. By utilizing a systematic process through the post-disaster period, the 36

47 elected officials can have a productive and meaningful impact on the quality of life in their community for years to come. Key Elements of Disaster Recovery Immediate stabilization of the community and attention to human needs. Implementation of short-term recovery program. Development of long-term recovery and mitigation program. Resources IDHS has trained staff to assist with the recovery process. Declaration Process Assisting communities responding to and recovering from major disaster occurrences when local resources are inadequate to meet needs effectively is one of the roles of the State and Federal government. The Robert T. Stafford Disaster Relief and Emergency Assistance Act, Public Law , as amended, provides a wide range of assistance to communities upon the declaration by the president of a major disaster or emergency. This program is coordinated by the Federal Emergency Management Agency. 37