Professional Documents
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Emergency Planning
Emergency Planning
Emergency Planning
33.1 Introduction 33.2 Planning for Emergencies
Deciding to Plan for Emergencies Who Will Plan for Emergencies: The Team Determining the Current Status Approaches to Planning for Emergencies Purpose of the Emergency Plan: The Mission Mission-Critical Functions
33.4 The Emergency Operations Center (EOC) 33.5 Training and Maintenance of the Emergency Plan
Training Maintenance
Charles Scawthorn
Consulting Engineer Berkeley, CA
33.6 Summary: Developing an Emergency Plan Dening Terms References Further Reading Appendix A Appendix B
33.1 Introduction
Earthquakes cannot be prevented, but the previous chapters have demonstrated that the potential for damage can be reduced or mitigated by strengthening of structures, bracing of equipment, and other measures. It is usually very difcult to eliminate the potential for all damage, so that some potential residual damage will always exist. Therefore, an organization should always have a plan for responding to some degree of damage and negative impacts due to an earthquake. Earthquake-specic plans are part of an organizations overall emergency plan. Most emergency plans have a far wider scope than earthquakes they also address res, explosions, transportation accidents, etc. In this chapter, we discuss the development and content of a general emergency plan, with occasional comments specic to earthquakes. Note that both public (whether a city government, water department, school district, etc.) and private
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entities should have an emergency plan, although these plans generally differ in some signicant ways, such as: A private entitys emergency plan is normally more narrowly focused on getting the business up and running. A governmental emergency plan normally has varying degrees of police powers, i.e., the ability to force people to do things. Because there are many parallels between public and private emergency plans, this chapter treats public and private entities together, referring in the broad sense to both entities as the organization, with occasional distinctions being made when appropriate. Furthermore, the discussion in this chapter does not attempt to address emergency planning for very large organizations, such as a multinational corporation or the federal government, or very small entities, such as a mom-and-pop store. Rather, this chapter is written with a mid-sized corporation or governmental agency in mind, such as an organization with several hundred to several thousand employees. An emergency is any event, usually sudden and without much, if any, warning, that can cause deaths or signicant injuries to employees, customers, or the public; or that can shut down an organizations functions or business, disrupt operations, cause physical or environmental damage, threaten its nancial standing or public image; or have other unwanted outcomes. Examples include any of the following, when they cannot be satisfactorily resolved by standard operating procedures (SOPs). Natural hazards: Earthquake, wildland re, ood or ash ood, hurricane, tornado, winter storm, etc. Technological hazards: Explosion, re, hazardous materials incident, communications failure, data loss, transportation accident, radiological accident, loss of key supplier or customer, etc. Man-made hazards: Product tampering, cyber attack, bombing, theft, sabotage, kidnapping, assault, civil disturbance, industrial espionage, etc. Emergency planning is a relatively young eld, having generally developed in the 1960s and 1970s out of the post-war civil defense function [DRC, n.d.], with many organizations not developing formal emergency plans until the 1980s or even 1990s. Terminology in the eld is relatively elastic, with the term emergency plan being variously synonymous with disaster plan, emergency operations plan, emergency response plan, emergency preparedness plan, emergency recovery plan, business continuity plan, contingency planning, etc. Each of these terms is used to narrowly distinguish plans with specic goals or that specically exclude certain aspects of a broader emergency plan. According to the Federal Emergency Management Agency [FEMA, 1996], while it depends to some extent on the organization and the situation, most emergency plans will be a document that: Strives to maintain continuity of functions that are fundamental to the organizations reason for being, through the duration of the emergency. Assigns responsibility to organizations and individuals for carrying out specic actions at projected times and places in an emergency that exceeds the capability or routine responsibility of any one department or agency. Sets forth lines of authority and organizational relationships, and shows how all actions will be coordinated. Describes how people and property will be protected in emergencies and disasters. Identies personnel, equipment, facilities, supplies, and other resources available, within the organization or by agreement with other organizations, for use during response and recovery operations. Identies steps to address mitigation concerns during response and recovery activities. If the emergency plan is a public document, it also cites its legal basis, objectives, and assumptions. An emergency plan is not any of the following:
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Safety plan: A plan by which normal day-to-day operations are performed safely, and consists of SOPs developed to allow safe operations, safety training, monitoring of accidents, etc. Business plan: A plan by which a company operates under normal circumstances, denes the companys mission, organization, products, strategy, nances, and operations under normal conditions. Administrative plan: A plan that describes policies and procedures basic to the support of a governmental endeavor, analogous to a private rms business plan. Mitigation plan: More typical of governmental agencies than of private sector companies, these typically consist of a policy statement and a series of steps designed to reduce a hazards damage potential. For example, a mitigation plan might consist of the decision to seismically retrot a set number of buildings each year. Preparedness plan: This plan covers maintaining existing emergency management capability in readiness, preventing emergency management capabilities from themselves falling victim to emergencies, and, if possible, augmenting the organizations emergency management capability. Recovery plan: This plan describes the process, responsibilities, resources, and other requirements for recovering from a disaster. Additionally, an emergency plan is not a collection of procedures [FEMA, 1996]. The basic criterion for what is in the plan is: What does the entire audience of the emergency plan need to know or have set out as a matter of public record? Information and how-to instructions needed only by an individual or smaller group can be left to SOPs, which may be annexed to the emergency plan or referenced as appropriate. Emergency management is the process of preparing for, mitigating, responding to, and recovering from an emergency. Emergency management is a dynamic process. Planning, though critical, is not the only component [FEMA, n.d.]. Training, conducting drills, testing equipment, and coordinating activities with the community are other important aspects of emergency management, which we will discuss next.
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expects elected leaders to take immediate appropriate action to deal with the problem. The government is expected to marshal its resources, channel the efforts of voluntary agencies and private enterprise in the community, and solicit assistance from outside of the jurisdiction, if necessary [FEMA, 1996]. Similarly, private companies have a moral responsibility to protect employees, the community, and the environment from processes and facilities within their purview. Whether a public or private organization, emergency response actions cannot be developed and properly executed in the confusion and stress immediately following an earthquake. To be effective, they must be planned, well thought out, and coordinated; responsibilities must be assigned; there must be adequate resources provided, and training to implement them. For industries such as banking, chemical, and nuclear, there are regulatory requirements of federal, state, and local agencies. An emergency plan enhances an organizations ability to recover from nancial losses, regulatory nes, loss of market share, damage to equipment or products, and business interruption [FEMA, n.d.]. An emergency plan reduces exposure to civil or criminal liability in the event of an incident. A good earthquake emergency plan enhances an organizations image and credibility with employees, customers, suppliers, and the community. An earthquake emergency plan can reduce insurance premiums.
Each of these arguments carries different weight, depending on the organization and the audience. One or several of them will often make a sufciently compelling case to at least begin determining the organizations current status with regard to having an emergency plan.
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Team Member/Function Sponsor Emergency planning manager Knows inputs Knows process Knows output/delivery Knows facilities Risk manager Other/ancillary members
Water Department Deputy department manager Operations manager Transmission managera Treatment plant managera Distribution managera Maintenance managera Risk manager Billing managera Water quality managera Eng. managera Personnel/HR managera Data/IT managera
School District Deputy district director Safety manager Transp. managera Instructional managera Nutrition managera Facilities managera Risk manager Personnel/HR managera Special education managera Data/IT managera School vice principalb PTA representative
a b
Most likely, a deputy or a member of the department. One from each school.
actual planning effort. Except for very large organizations, the development of the emergency plan is not a full-time effort, and the managers time commitment typically will range from 10 to 25% during development. The manager attends all meetings of the core team, chairing them in the sponsors absence, monitors and directs plan content, resolves questions, directs resources, and monitors progress and schedule. Through the sponsor, the manager is responsible for the successful completion of the emergency plan, on schedule and within budget. Candidates for emergency planning manager can be the managers of operations, safety, facilities, or planning. Other members of the core team usually include managers or their deputies drawn typically from the following key functions: operations, facilities, engineering, planning, human resources, and nance. Table 33.1 shows hypothetical examples of core team composition for a water department, a school district, and a private manufacturing company. The organizations legal counsel can be a resource but not necessarily a member of the planning team. In some organizations, the role of emergency plan manager is outsourced to a consultant; however, this is not recommended because the consultant probably will not be available during an emergency. Consultants may be used as members of the core team (facilitators) because they bring experience and expertise to the planning process. Note that a natural development is for the core team to evolve into the emergency management team, with the emergency planning manager becoming the organizations emergency manager. However, it should be recognized, and reected in the emergency plan, that the CEO makes all nal, critical decisions for the emergency management team in a real emergency. This is discussed in Section 33.3.4.
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values with 10% probability of exceedance in 50 years. If an organizations facilities lie within areas with PGA values of 3% of g or greater, then there is at least some degree of earthquake risk. Ground shaking is one aspect of earthquake risk; another is the vulnerability of an organizations buildings and equipment. These aspects are covered in detail in other chapters in this volume but a ready reference with ample illustrative photographs on the degree of seismic vulnerability for various kinds of buildings is FEMA 154 [2002]. 33.2.3.2 Current Plans, Documents, and Requirements Does any part of the organization have other plans, such as safety plans, re and evacuation plans, security procedures, or insurance loss prevention reports, which may be useful to an emergency plan? Another issue is whether an emergency plan is required for the organization. If so, the specic requirements can be determined early in the planning process, so that the resulting emergency plan satises those requirements. 33.2.3.3 Insurance After life safety, an important goal of any emergency plan is to reduce the potential economic loss. Insurance is another method of protecting against potential economic loss. Determining the degree to which an organizations insurance coverage protects it against potential economic loss indicates the urgency for an emergency plan. In the case of earthquakes, obtaining adequate insurance coverage is not always possible, and typically is expensive in high seismic hazard regions. Thus, it may be that the organization has little or no insurance for potential economic losses due to earthquake, in which case the need for an emergency plan is further validated. The more sophisticated insurance companies and brokers have extensive experience with earthquake risk and emergency planning, and may be able to assist the organization in its efforts.
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FIGURE 33.1 Map of peak ground acceleration (PGA) with 10% probability of exceedance in 50 years. (From U.S. Geological Survey, available online at http://geohazards.cr.usgs.gov/eq/hazmaps/usmap1r.gif.)
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Note that mission-critical functions do not have to maintain their normal productivity during the emergency period; some reduction in water quality and quantity may be acceptable. Note also that other functions within the water department, such as payroll, maintenance, billing, and accounting, may be temporarily deferred during the emergency period (i.e., they are not mission-critical), and those human and other resources (e.g., vehicles, space) may be employed with other duties during the emergency period. For example, human resources peronnel can assist in recalling off-duty staff to deal with the emergency and assist overburdened staff in coping with stress, and public relations personnel can assure proper dissemination of urgent messages to the public, such as a boil water order. In summary, the purpose of the emergency plan is to assure continued fulllment of the organizations mission despite the emergency. A necessary step in developing an emergency plan is therefore to employ the organizations mission statement for dening the purpose of the emergency plan. Successful
Consider, for example, the great railroad companies of the early twentieth century, who thought their mission was to move people and goods by rail. In fact, their mission was to provide transportation, and when the airplane emerged as a viable transportation mode, the railroad companies did not understand that it was simply a technological development supportive of their mission. Rather, they thought aviation was a different business. 2 Clearly, one can argue that mission and function as dened here are interchangeable. However, there is a distinction: the mission is the reason for being of the organization, and should be accomplished whether various functions are performed or not.
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fulllment of the organizations mission requires assuring performance of mission-critical functions. A next necessary step is therefore to identify mission-critical functions.
The preliminary list of mission-critical functions can be reviewed with stakeholders and persons and organizations who are affected by the organizations performance, including management, parent organizations, employees, customers, suppliers, regulators, and representatives of the public. Using a water department as an example, stakeholders can include senior department management, the mayor and relevant council members, employees unions, business customers (e.g., a brewery or process industry), the re department and local hospitals (customers), the water wholesaler (e.g., U.S. Bureau of Reclamation), the state health board, the U.S. Environmental Protection Agency, and neighborhood associations. Consultation of stakeholders, especially for public agencies, is a very important issue. Stakeholders are not members of the core team, and most do not have a decision role in the formulation of the emergency plan; more typically, they are a source of data for the core team. However, because they are stakeholders, their participation must be carefully and respectfully solicited, and it must be recognized that they may have expectations as to feedback they will receive for their participation. Consultation of stakeholders can be accomplished via one-on-one interviews or in one or more workshops. Either method requires careful preparation and good communication. Development and careful framing of questions for the interview or workshop is necessary and can be tested prior to actual use. Testing of interview questions can be done via role-playing within the core team, or by conducting an interview with a person supportive of the emergency planning effort. For actual interviews, the interviewer must be carefully selected so as to have good communication and people skills. For a workshop, a trained facilitator is recommended. Taking the water department as an example again, an initial, mission-critical function the core team identies is that some water volume and pressure (regardless of quality) must be supplied to a particular district because that district contains a large factory. The water is required for re protection of the factory and surrounding properties. Interviews with the re department and factory manager may indicate: The re department has identied adequate alternative water supplies (e.g., a nearby pond) The factory has its own auxiliary water supply, equipment, and personnel for ghting res (e.g., the pond, pumps, an in-house re brigade, etc.) Therefore, that mission-critical function can be eliminated for that district. Review of the preliminary list in light of stakeholder input will result in amendment of the list and dimensions of mission-critical functions. The process may take several rounds until a reasonably complete set of mission-critical functions can be identied.
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33.2.6.1 Accomplishing Mission-Critical Functions Having identied mission-critical functions, the next step is identifying how they will be accomplished under emergency conditions. Clearly, this depends on the emergency. Most of the time, some planning assumptions, based on emergency scenarios, must be introduced at this point in the planning process. It is not realistic and neither can an organization afford to plan for accomplishing its mission-critical functions during an earthquake in which everything is destroyed, people are killed, no transportation is possible, etc. Some assumptions have to be made that certain facilities are likely to be partially functional, some communications will be possible, etc. These assumptions in the context of emergency planning for earthquakes must be based on reasonable, conservative analyses and assumptions as to the magnitude and location of the earthquake, its intensity at various points, the vulnerability of facilities, etc. Other chapters in this volume provide background, data, and references on these aspects. For earthquake-related emergency planning, the planning process takes a bottom-up approach. In this approach, earthquake impacts on facilities, people, and processes are estimated, allowing for some negative coincidences (in the example of a water department, both water treatment plants 1 and 2 are damaged) in order to develop one or more earthquake planning scenarios. These scenarios describe the impacts on mission-critical functions and resources that can be employed to respond to these impacts. The planning process then proceeds to identify alternative ways to restore or accomplish the missioncritical functions, taking into account post-earthquake conditions. A key aspect of the planning process is to carefully examine mission-critical functions to assure that their restoration or alternative accomplishment does not solely depend on one facility, person, or process, i.e., there are no single points of failure. To that extent, the emergency plan must identify backup measures for restoring or alternatively accomplishing the mission-critical functions. In the event that a missioncritical function cannot be assured of restoration or alternative accomplishment, the core team must communicate to the CEO that the emergency plan cannot assure the organizations mission in an emergency. The CEO then must resolve the issue as to whether to commit more resources to assuring the organizations mission in an emergency, or to relax the organizations commitment to the performance of its mission under emergency conditions. Using the water department as an example again, it may be prohibitively expensive to assure potable water service to a district immediately following an earthquake, due to analysis indicating that there will be too many pipe breaks in the distribution system. The water department manager must then confer with the re department (and probably the mayor and other decision-makers) and communicate the possible outcome: Because the district will not have water service until the pipe breaks are xed, the re department will understand that hydrants will be dry following an earthquake, and it will be necessary to identify and practice (i.e., plan) using alternative water supplies. Water will be brought in to the district for household use, the city will furnish portable toilets, and businesses will function without water service. Because this example concerns public matters, whether to communicate this decision and its consequences to the public and the business community is a political issue. In the example of a private rm knowing that its emergency plan cannot overcome the loss of a key facility, that decision must then be communicated to the CEO, the board, and disclosed to investors.
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Examined the organization from the point of view of a recovery effort Gained senior management and organizational support, and necessary resources for developing the emergency plan Identied mission-critical functions Gained a head start in dealing with future emergencies While this is of enormous benet, the knowledge is conned to the core team only. It must be recorded in a written emergency plan in order to preserve the knowledge, disseminate it to the rest of the organization, and provide a document for training and drill purposes and as a resource in the event of an actual emergency. This section discusses the writing of the emergency plan.
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Table of Contents
Mayors Promulgation Memorandum Cover Letter to Public Safety Chair Requesting City Council Approval City Council Resolution 30041 Acknowledgments Record of Revisions INTRODUCTION Mission Purpose Scope Limitations Liability Substantive Plan Changes POLICIES Applicable Federal Laws, Regulations, and Executive Branch Orders Applicable State Laws and Regulations Applicable Municipal Laws Related Plans Governance Assignment of Responsibilities SITUATION Local Environment Emergency/Disaster Conditions and Hazards Planning Assumptions CONCEPT OF OPERATIONS General Emergency Management Concepts Direction and Control Emergency Support Functions Citywide Flow of Emergency Communications Government Emergency Operations Facilities ORGANIZATIONAL RESPONSIBILITIES Common Responsibilities for City Departments and Commissions Specic Responsibilities for City Departments Non-City Government Support Organizations MAYORAL PREROGATIVES Proclamation of Civil Emergency Emergency Powers Authority to Enter into Contracts and Incur Obligations Commandeering Services, Equipment, and Supplies Proclamation of Termination of Civil Emergency INTERGOVERNMENT RELATIONSHIPS Emergency Support Given by the City Emergency Support Received by the City TABS Tab A Glossary of Emergency Management and ICS Terms Tab B Generic Outline for Internal Emergency Preparedness Plans Tab C Disaster Recovery Plan Checklist Tab D Federal Disaster Recovery Programs Tab E Weapons of Mass Destruction Response Resources Tab F Plan Distribution FIGURE 33.2 Disaster Readiness and Response Plan, City of Seattle. Available online at http://www.ci.seattle.wa.us/ emergency_mgt/resources/plans.htm.
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page is the rst page after the title page, followed by a distribution log, indicating who receives copies of the emergency plan. A one-page executive summary is next, followed by a one-page table of contents; if needed, a detailed table of contents follows. The introduction states the plans purpose, derived from the organizations mission statement, which also is stated. If relevant, authorizing legislation or regulations, mandating the plan, and acknowledgments are stated in the Introduction. If the plan is required by law, a brief explanation of compliance is included. History of the emergency plan and special circumstances associated with its creation (e.g., this plan was created because of the terrible experience we had in the last earthquake) are included. The organization of the plan document is described. Associated materials that may have been distributed, such as wallet-sized phone cards or pocket-sized summaries of the emergency plan (for keeping at home, in a briefcase, or in the trunk of a key persons car), are mentioned and described.
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Sou
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Green Lake
Legend
Liquefaction Zones Landslide Prone Areas
Elliolt Bay
W S
Scale in Miles
2000, The City of Seattle, all rights reserved. No warranties of any sort, including accuracy, fitness or merchantability, accompany this product.
FIGURE 33.3 Map of liquefaction zones and landslide-prone areas, Disaster Readiness and Response Plan, City of Seattle. Available online at http://www.ci.seattle.wa.us/emergency_mgt/resources/plans.htm.
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earthquake is assumed to occur when children are in school or at the period of highest water demand. If mutual aid is a key part of the emergency plan, the assumption of how the emergency affects the aiding entity must be stated: mutual aid is assumed to come from Faraway Township, because the scenario earthquake used for this emergency plan is also assumed to affect Othertown. Interdependencies must be stated here: it is assumed that Faraway Water Wholesaler, the supplier of raw water to Everytown Water District, is unaffected by the scenario earthquake. A key assumption for all emergency plans is the arrival of outside disaster assistance (e.g., state militia, mutual aiding utilities, etc). This must be clearly and unambiguously stated, as it forms the basis for many actions in the emergency plan. If the conditions on which this assumption are based change, this is clearly understood, and the emergency plan can be correspondingly revised.
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MAYOR
COMMAND STAFF DEPUTY MAYOR FOR PUBLIC SAFETY OVERSIGHT ESF-5 EMERGENCY PUBLIC INFORMATION (DIRECTOR OF COMMUNICATIONS) DMC CHAIRMAN (SPD)
GENERAL STAFF
OPERATIONS SECTION
PLANS/ADMIN SECTION
LOGISTICS SECTION
FINANCE SECTION
FIGURE 33.4 Disaster management committee organization, Disaster Readiness and Response Plan, City of Seattle. Available online at http://www.ci.seattle.wa.us/emergency_mgt/resources/plans.htm.
Emergency manager
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Management (Incident Command System) Operations Planning / Intelligence Logistics Finance / Administration
33.3.5.1 Activation This step consists of deciding that an emergency exists. In some cases, such as an approaching hurricane, the damaging agent may not have occurred yet, but the emergency may have already occurred with signicant actions such as evacuation underway. Deciding that an emergency exists requires recognizing that certain conditions exist, and that these conditions may prevent the organizations mission from being accomplished under normal SOPs. Earthquakes fall into the category of self-declaring emergencies, i.e., if an earthquake occurs, people in the affected area know about it. However, persons outside of the affected area will not immediately know that an earthquake has occurred. The emergency management team, the Emergency Operations Center (EOC), and other relevant parts of the emergency management organization may be outside of the affected area. In such cases, preexisting arrangements should be made with local seismological observatories or emergency services for notication of possible activation if an earthquake has occurred in certain localities. 33.3.5.2 Notication This step consists of two parts: 1. Internal notication: Notifying the emergency management team and other relevant members of the organization that an emergency exists, so that they may begin to take appropriate actions. Specics of how notication should occur depend on the organization and the situational context. Again, for persons in the affected area, earthquakes are self-declaring. Outside the affected area, communications should be such that notication is not totally precluded: pagers and telephones should still be functioning, generally speaking. This is not always the case, however. In the 1999 Marmara (Turkey) earthquake, the earthquake severed the main ber-optic telephone lines between Istanbul, the Marmara region, and the national capital of Ankara. The Turkish head of state, the national emergency response agency, and other key persons did not know of the event, and then did not have adequate communication with the affected area for several critical hours. 2. External notication: Notifying others that an emergency exists. While earthquakes may be selfdeclaring, local emergency agencies in the affected area may not know of a specic emergency condition at your organization until you inform them. Similarly, your organization may be vulnerable to an emergency at another location, and will remain ignorant of the vulnerability until you are notied. The emergency plan should have a checklist of agencies with whom your organization must cooperate and coordinate.
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33.3.5.3 Mobilization This step consists of the execution of the initial emergency response actions, one of the rst of which is the activation of the EOC, and the assembling of the emergency management team. In some cases, the emergency plan should include selected persons taking initial steps different than activating and assembling at the EOC (e.g., in the event of the earthquake, the water departments dam keeper should immediately inspect the dam and report its condition to the EOC).
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PROCESSED: Sun Feb 24, 2002 05:43:19 PM PST, NOT REVIEWED BY HUMAN
PERCEIVED SHAKING POTENTIAL DAMAGE PEAK ACC (%g) PEAK VEL (cm/s) INSTRUMENTAL INTENSITY
Weak none
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FIGURE 33.6 Example of near real-time shaking intensity map (available online at http://www.trinet.org/shake/).
will be providing the same information. The USGS National Earthquake Information Center Web site (http://neic.usgs.gov/neis/bulletin/) provides near real-time information on signicant earthquakes anywhere in the world (located in Denver, the telephone number is 303-273-8516). There are a number of Web sites that now provide rapid intensity information, such as the California Integrated Seismic Network (Figure 33.6). Also available are damage estimation tools, such as EPEDAT (Early Post-Earthquake Damage Assessment Tool) and GeoProtectSM, which permit rapid estimation of damage to guide the situation assessment and emergency responders prior to their acquiring hard information (Figures 33.7 and 33.8). Situation assessment is an ongoing task throughout the emergency. At rst, it is broad and general, assessing the general situation; as the emergency progresses, situation assessment evolves into more detailed damage assessment. The emergency plan should call for situation reports (SitReps) to be made and distributed, according to a simple, concise, prearranged format, at regular intervals that correspond to the urgency of the situation. At rst, SitReps can be issued every 30 minutes but as the emergency is brought under control, SitReps can be required only twice daily, then once daily, and so on.
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(a)
(b)
FIGURE 33.7 Early Post-Earthquake Damage Assessment Tool (EPEDAT). (a) Earthquake shaking intensity map for selected event (M 7.0, Newport-Inglewood fault zone, Los Angeles). (b) Map showing major hospitals in affected zone. (Courtesy EQE International)
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(a)
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FIGURE 33.8 (a) Utilizing toxic hazard plume modeling, real-time emergency response vehicle tracking, and automated evacuation route generation, GeoProtectSM provides emergency managers and rst responders with an accurate depiction of the event scene that enhances crisis management decision-making. (b) Integrating accurate information about a water distribution system with GIS, GeoProtectSM enables disaster planners to predict the impact of a contamination or disruption of vital services. (From CH2MHILL, Inc. With permission.)
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33.3.6.3 Operations This consists of taking specic steps to restore mission-critical functions or respond to damage. Operations are the responsibility of the operations ofcer, who should initiate Ops only as the situation assessment claries the actions that are required, and these can be prioritized against the available resources. The emergency plan can assist the emergency management team in anticipating likely scenarios based on the risk assessment, and providing checklists for such situations. An example checklist is provided in Appendix B. 33.3.6.4 Resource Management Also termed the logistics function, this consists of a resource or logistics ofcer (the latter term is used in the ICS) who tracks, controls, and deploys resources at the request of the operations ofcer. As resources dwindle, it is the responsibility of the resource ofcer to nd additional resources. Sources such as local contractors, emergency agencies, mutual aid organizations, and others must be identied in the emergency plan, with appropriate contact information. To the extent appropriate, soft or hard contracting arrangements can be prearranged. 33.3.6.5 Finance A member of the emergency management team handles nances. Cash may be required in certain cases, but authority to spend will denitely be necessary. This authority on the part of the emergency management team must be predened, with special authorization required of the emergency manager or the CEO. For example, if a company must house and feed stranded workers, the nance ofcer of the emergency management team has the authority to approve that expenditure. 33.3.6.6 Communications The communications ofcer is the member of the emergency management team who has responsibility for communications, including hardware and content. Tasks include (1) assuring that the emergency management team has adequate communications in terms of telephone, radio, incoming broadcast, etc., and (2) assuring appropriate public information is being communicated. In the latter case, a public information ofcer (PIO) can report to the communications ofcer and have responsibility for understanding the need for information and how to appropriately transmit this information to the media and the public. The PIO both advises the emergency management team and CEO on public image and related matters, and convenes and maintains the media brieng room. 33.3.6.7 Human Resources The human resource ofcer (HRO) is the member of the emergency management team who has several responsibilities, including (1) assuring adequate human resources are available for the tasks, (2) assisting employees with family needs, including medical insurance and related aspects, and (3) monitoring and assisting with emergency-related stress. An emergency is a very stressful situation, and the HRO must be alert to employees or members of the emergency management team who are suffering undue effects from this stress. Stress management and relief techniques are well documented, and the emergency plan must provide for these, as well as for training the HRO in these techniques. This task does not have to fall entirely on the shoulders of the HRO; the emergency plan, for example, can prearrange for clergy, academics, or other resources helpful in this aspect to be part of the larger emergency management team. 33.3.6.8 Records The records ofcer (RO) is the member of the emergency management team who is present in the EOC and records all important events, including personnel arrivals and departures, incoming reports, questions, decisions, outgoing communications, and expenditures-related information. The RO does not necessarily record all of these events personally, but assures they are being recorded (e.g., expenditures are recorded by the nance ofcer) and that a record is provided to the scribe. However, a computer can be provided in the EOC for the use of the RO. The RO or an assistant can be stationed there during the initial phases of the emergency.
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33.3.6.9 Recovery/Reconstruction (R/R) The purpose of operations is to bring the emergency under control and stabilize the situation. Stabilize means that nothing is getting worse, and that processes, hazardous materials, and other potentially dynamic phenomena have been safely shut down, contained, or otherwise controlled. When the emergency is under control, the initial phase of the emergency is over. The next phase is the recovery, and then the reconstruction. Recovery refers to the restoration of seminormal operations of the organization, perhaps in temporary quarters or using temporary methods. Reconstruction refers to the restoration of normal operations of the organization, in permanent quarters using normal procedures. The R/R aspects may or may not be part of the emergency plan. 33.3.6.10 Stand Down This refers to the end of the emergency, return of the emergency management team members to their normal jobs, and closure of the EOC. This is not always a clear-cut process. In many cases, the EOC and emergency management team remain in a semiactive role and increasingly assume R/R responsibilities. However, it is healthy for the organization to declare the emergency phase over, and some criteria and procedures for doing this must be part of the emergency plan. 33.3.6.11 After-Incident Report (AIR) This consists of collation and interpretation of data from the emergency. Data to be collated include information on the damaging event (e.g., the earthquake), damage assessments, personnel debriefs, quantiable impacts (e.g., lost production, drops in tank levels, student attendance drop-off), nancial impacts, the emergency response, and an assessment of what worked well and what did not. The media, especially newspapers, are a valuable resource that should not be overlooked in this regard. The purpose of the AIR is to capture data while it is still available (i.e., before it is lost), to extract valuable lessons so as to reduce the organizations overall vulnerability to the emergency, and to improve the emergency plan and the emergency management teams performance. In the exhaustion of the post-emergency phase, it is all too easy to postpone or forego the AIR. The emergency manager and CEO must ensure this does not happen.
33.3.7 Communications
This section of the plan details the responsibilities of the communications ofcer (described previously). Communications are divided into two fundamental aspects: 1. Internal: This involves assuring that the emergency management team has adequate communications capabilities in terms of telephone, radio, incoming broadcasts, etc. to perform its tasks. This also involves organization and dissemination of important information in the form of SitReps, discussed previously. Another aspect of communications is information display within the EOC: whiteboards, large projection, GIS-based maps, video, and other data and methods can all be considered, depending on the organization. 2. External: The PIO, reporting to the communications ofcer, has responsibility for understanding the public need for information and how to appropriately transmit this information to the media and the public. The PIO both advises the emergency management team and CEO on public image and related matters, and convenes and maintains the media brieng room.
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33.3.9 References
This section contains proper and full citation of SOPs, materials, data, and other information and agencies referred to in the emergency plan.
Emergency Planning
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DORM
DORM
Office
CEO office
Fence
Layout for a medium- to large-sized organization A typical EOC has a main operations center, typically a large room with a large table or U-shaped arrangement of tables or desks, at which the main members of the emergency management team sit, with the emergency manager at the head of the table. The walls of this room can have whiteboards and a large video projection display. A TV with low volume can be on at all times. One or several smaller rooms can be available for small secured conferences, telephone calls, or simple quiet rooms. A room, typically with a window overlooking the Ops Center, can be reserved for the CEO, in which he can function while visually monitoring the overall operation (simple body language can often keep the CEO informed as to how the emergency is progressing). Separated from the main Ops Center can be an eating area and one or two dormitories, restrooms, etc. Security: The entire EOC must have secured access. Media: Media should not be permitted in the EOC, but rather are briefed in a separate media brieng room. Figure 33.9 shows a schematic example of an EOC layout; Figure 33.10 shows an actual EOC in a mid-sized city.
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33.5.1.1 Tasks This refers to identifying specic tasks in the emergency plan and the parties responsible for performing them, and assuring that the responsible parties have the understanding, skills, and resources to perform the tasks. For example, is the records ofcer appropriately informed, skilled, and equipped to assure adequate record-keeping during the emergency? Does that person have the computer literacy, organizational abilities, database prociency, and other skills to process, archive, and retrieve a large mass of information in a short time? To assure this, the emergency plan must be reviewed for the hundreds of tasks that may be required of each member of the emergency management team. These tasks can all be compiled and reviewed for skills required, equipment needed, etc. Most of the tasks can be easily identied as within the normal skill set of the members of the emergency management team. Some fraction, however, may not clearly be so, and a training program can then be established to assure that the skills exist. These skills can then be maintained via periodic drills of individuals. 33.5.1.2 Exercises In an actual emergency, it is too late to begin to read the emergency plan. The methods and processes of the emergency plan must be inculcated in the team via task training and exercises. Exercises combine various tasks to simulate some or all aspects of the emergency management. Exercising of the emergency plan can start off by combining only a few of the emergency plan tasks, such as Situation Assessment and Communications. Simply bring these two ofcers together and have them try to perform selected tasks where interaction or support of one by the other is required. Gradually increase the combination of tasks until the entire emergency plan is being practiced in a tabletop exercise. Tabletop exercises consist of simply sitting around a table and discussing what each member of the emergency management team would be doing in response to various simulated situations. As tabletop exercises are successfully completed, a full exercise is then required, involving the activation of the EOC, assembling of the entire emergency management team (including the CEO), real-time simulation of emergency messages, some surprises, etc. Design and execution of tabletop and full exercises are a vital part of the overall emergency plan.
33.5.2 Maintenance
Any emergency plan, if not maintained, will quickly become out of date. Maintenance involves periodic revision of information in the report, such as organization charts, contact information, monitoring of applicable regulations and requirements to assure compliance, and review of the overall emergency plan to assure it is updated with regard to best practices in the eld.
Emergency Planning
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Dening Terms
Disaster This term is not used in this chapter as it is associated with a large-scale event, usually a
natural disaster. More appropriately, each incident must be considered in view of the impact it has on the organization. What may constitute a nuisance to a large corporation can be a disaster to a small business. Emergency Any unplanned event that can cause death or signicant injury to employees, customers, or the public; shut down a business; disrupt operations; cause physical or environmental damage; threaten a facilitys nancial standing or public image; or cause the loss of key supplier or customer. An emergency can be caused by explosion, re, hazardous materials incident, ood or ash ood, hurricane, tornado, winter storm, earthquake, communications failure, radiological accident, or civil disturbance. Emergency operations center (EOC) The location from which emergency operations are commanded and coordinated. Usually consists of a predesignated location with assured communications and logistics. The EOC must have a backup location. Emergency plan An organizations written description of how it will respond to an emergency, detailing the makeup of the emergency management team and the tasks it will perform.
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Function Operations or purposes serving the organizations mission. Mission The purpose of the organization, why it exists. Mitigation Actions taken to reduce the negative impacts of an event such as an earthquake. Organization As used in this chapter, a rubric for the public or private agency for which the emergency
plan is written.
Residual damage Any damage that it is not feasible to mitigate. Standard operating procedures (SOP) Normal, day-to-day procedures developed and approved by
an organization on the basis that they are safe and efcient for the performance of a function.
References
City of Seattle. 1999. Disaster Readiness and Response Plan, City of Seattle, WA. Available online at http:/ /www.ci.seattle.wa.us/emergency_mgt/resources/plans.htm. DRC (n.d.). Disaster Planning, Emergency Management, and Civil Protection: The Historical Development and Current Characteristics of Organized Efforts to Prevent and Respond to Disasters, Disaster Research Center, University of Delaware, Newark. Available online at http://www.udel.edu/DRC/ preliminary/227.pdf). FEMA (n.d.). Emergency Management Guide for Business and Industry: A Step-by-Step Approach to Emergency Planning, Response and Recovery for Companies of all Sizes, Sponsored by a public-private partnership with the Federal Emergency Management Agency, Washington, D.C. FEMA. 1996. Guide for All-Hazard Emergency Operations Planning, State and Local Guide (SLG) 101, Federal Emergency Management Agency, Washington, D.C. FEMA. 2002. Rapid Visual Screening of Buildings for Potential Seismic Hazards: A Handbook, 2nd ed., FEMA 154, developed for the Federal Emergency Management Agency by the Applied Technology Council, Redwood City, CA. Available from the Federal Emergency Management Agency, Washington, D.C.
Further Reading
There are a number of good references on emergency planning. FEMA [n.d.] is appropriate for privatesector organizations, while FEMA [1996] is appropriate for state and local governments. Both are available free at www.fema.gov. The City of Seattles Disaster Readiness and Response Plan is available online, and is a good emergency plan model, whether public or private sector. The Disaster Research Center (University of Delaware, www.udel.edu/DRC) is an excellent resource for the more fundamental aspects of disasters and their impacts.
Appendix A
Everytown Water Department
EVERYTOWN WATER DEPARTMENT EMERGENCY PLAN TABLE OF CONTENTS
Rev. 1.0
INTRODUCTION
Emergency Operations Plan Emergency Planning Group Mission Statement Response Objectives Response Priorities Authorities/References
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4.0 Testing, Maintenance, Training, and Employee Training 4.1 Plan Testing and Maintenance 4.2 Employee Training
Appendix A
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Vehicle List (Water Treatment Division) Vehicle List (North Division) Vehicle List (Operations Engineering) Vehicle List (South Division) Employee Emergency Contact List (South Division) 8.0 Water Quality Division 8.1 Emergency Response Function 8.2 Emergency Water Quality Policies 8.3 Coordination with Local Governments 8.4 Emergency Response Procedures 8.5 Forms Notication of Unsafe Water Alert Sample Cancellation of Unsafe Water Alert Notication of Boil Water Order Notication of Cancellation of Boil Water Order Employee Emergency Contact List Emergency Equipment/Materials List Vehicle List Emergency Chlorination Plan Emergency Management Organization (EMO) EMO Responsibilities EOC Layout 9.0 City Distribution Division 9.1 Emergency Response Functions 9.2 Damage Assessment Procedures 9.3 Water Transfer Strategy Procedures 9.4 Coordination with Everytown Fire Department 9.5 Emergency Water Supply Procedures 9.6 System Repair Procedures 9.7 Dam and Reservoir Emergency Procedures 9.8 CDD Administration and Clerical Personnel 9.9 Forms CDD Rendezvous Points and Staging Areas Employee Emergency Contact List Emergency Equipment/Materials List Vehicle List Emergency Management Organization (EMO) EMO Responsibilities EOC Layout 10.0 Customer Service Division 10.1 Customer Service and Commercial Division 10.2 Field Services Section 10.3 Forms Employee Emergency Contact List (Customer Accounts and Customer Service) Vehicle List (Customer Accounts and Customer Service) Employee Emergency Contact List (Field Services Section) Emergency Equipment Materials List (Field Services Section) Vehicle List (Field Services Section)
2003 by CRC Press LLC
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11.0
12.0
13.0
14.0
15.0
Labor Pool Emergency Assignment List Field Services Section Damage Assessment Report Form Inrm Areas Map Emergency Management Organization (EMO) EMO Responsibilities EOC Layout General Manager and Staff 11.1 Emergency Response Actions 11.2 Chain of Succession 11.3 Forms Employee Emergency Contact Emergency Management Organization (EMO) EMO Responsibilities EOC Layout Hazardous Materials Response 12.1 Response Categories 12.2 Immediate Threat to Water Supply or Life Safety 12.3 Reportable Event or Threat to the Environment 12.4 Not a Reportable Event, No Threat 12.5 Hazardous Materials Departmental Coordinator and Hazardous Materials Site Coordinators Media Plan 13.1 Key Audiences 13.2 Level of Response and Media Interest 13.3 Organizational Response Structure 13.4 Crisis Communications Responsibilities 13.5 Guidelines for Notifying and Informing Key Audiences 13.6 Policies for EWD Spokespersons 13.7 Guidelines and Policies for Employees 13.8 Guidelines for Conducting a News Brieng or Press Conference 13.9 Guidelines for Responding to External Inquiries Other Than News Media 13.10 Guidelines for Providing Information to Employees Employee Care and Welfare 14.1 Medical 14.2 Provisioning 14.3 Employee Self-Sufciency 14.4 Shelter 14.5 Forms Employee Questionnaire Employee Roster Emergency Supply Locations Triage Tag Injured Transport Record Emergency Supply Inventory Medical Treatment Log Emergency Response Team and Building Evacuation 15.1 Emergency Response Team 15.2 Building Evacuation Drill Guidelines
Appendix A
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15.3 Occupant Stairwell Safety 15.4 Disabled Employees 15.5 Forms ERT Organization ERT Membership Application ERT Assignments Floor Coordinator Evacuation Drill Checklist Area Coordinator Evacuation Drill Checklist ERT Evacuation Drill Summary Checklist Building Evacuation Report Floor Plans Division Manager Evacuation Drill Checklist
Appendix B
Everytown Water Department Rev. 1.0
EMERGENCY ACTION CHECKLIST CITY DISTRIBUTION DIVISION Response to Major Earthquake Primary responsibility for this checklist is assigned to the Operations Manager at the EWD EOC.
ACTION
Report to EWD EOC. Activate EOC and ensure that the EOC is staffed and operational. Contact General Manager at Everytown EOC to conrm that EWD EOC is activated and provide brieng on current status.
RESPONSIBILITY
DAMAGE ASSESSMENT
Monitor radio trafc for initial information on system damage and city-wide damage areas. If telephones are operating, monitor and log calls from citizens reporting visible water system damage. Establish radio contact with CDD Gatemen and repair crews in the eld and at staging areas. Dispatch crews to reservoirs and storage tanks for damage inspection. Receive damage information from Adopt-A-Main volunteers, Gatemen, and repair crews. Analyze damage information and provide recommendations for repair priorities to Operations Manager at EOC. Provide damage status report to General Manager at Everytown EOC, as needed. Maintain records of damage information and record activities on Activity Log.
REPAIR COORDINATION
Determine repair priorities based on requirements to maintain water pressure to critical users. Contact and coordinate activities with Everytown Fire Department liaison. Dispatch Gatemen to assist EFD at critical locations for reghting.
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ACTION
Determine water transfer strategies and direct Gatemen to isolate main breaks and route water ow, as needed to maintain pressure. Dispatch repair crews to priority locations to begin repairs. Contact EOC Director (Deputy General Manager) or Operations Manager at Othertown EOC to provide periodic status reports and to coordinate activities, as needed. Determine need for mutual aid and contact Mutual Aid partners, as needed to supplement repair crews. Determine need for contractors and vendors, and contact, as needed to provide repair services, equipment, and supplies. Provide periodic status reports to General Manager at Everytown EOC.
RESPONSIBILITY