Emergency Management Concepts and Strategies for Effective Programs

Provides a comprehensive examination of emergency management and offers concepts and strategies for creating effective programs

This book looks at the larger context within which emergency management response occurs, and stresses the development of a program to address a wide range of issues. Not limited to traditional emergency response to natural disasters, it addresses a conceptual model capable of integrating multiple disciplines and dealing with unexpected emergencies.

Emergency Management: Concepts and Strategies for Effective Programs, Second Edition starts by focusing on the three pillars on which successful emergency management is based: an understanding of history, knowledge of social science research, and technical expertise in emergency management operations. It provides insight as to how emergency management has evolved and suggests reasons why the current method of response planning doesn’t work as well as it should. The book then goes on to discuss establishing and administering the emergency management program. It looks at the analysis of risk as the basis for strategy development, and considers both the traditional macro view of hazard identification and analysis as well as the micro view required for continuity planning. Strategy development is examined next, followed by coverage of planning process, techniques and methods. The book finishes with chapters on coordinating response, leading in crisis, and crisis management.

• Features two new chapters on the development of national response strategy and leadership in a crisis
• Incorporates the Principles of Emergency Management adopted by many emergency management professional associations and agencies
• Encourages the development of an enterprise wide program to address a wide range of potential threats
• Covers the various phases of comprehensive emergency management
• Integrates academic research with practical experience and case studies

Emergency Management: Concepts and Strategies for Effective Programs is an important book that will benefit students, law enforcement, and state and local emergency managers and planners involved in emergency management.

LUCIEN G. CANTON, CEM, CPP CBCP, has over 40 years' experience in hazard and risk analysis, loss reduction, and emergency planning. As the Director of Emergency Services for the City of San Francisco from 1996 to 2004, he was responsible for coordinating the City's emergency management program and served as a policy advisor on emergency management and Homeland Security issues. Prior to his appointment, Mr. Canton was an Emergency Management Specialist with the Federal Emergency Management Agency from 1990 to 1996.

Preface to the Second Edition xiii

Preface to the First Edition xv

Introduction xvii

1 Historical Perspectives: The Evolution of Emergency Management 1

Why Study History? 2

Lessons from History 5

The Advent of Disaster Legislation 14

The Growth of Disaster Bureaucracy 22

From Military to Civilian Leadership 23

Civil Defense and Disaster Relief Merge 27

Conclusion 32

2 Historical Perspectives: Toward a National Response Strategy 33

The Origins of National Planning 34

September 11 and the Impact of Homeland Security 36

The Marginalization of Emergency Management 36

Capabilities‐based Planning Replaces All‐Hazards Planning 39

The Pendulum Swings Back: Hurricane Katrina 43

A Failed Response? 43

Degraded Capabilities and Confused Planning 45

Reform and New Planning Concepts 47

Conclusion 49

3 Social Science and the Beginnings of Emergency Management Theory 51

Social Science as an Emergency Management Tool 51

Social Science Evolves Emergency Management Theory 52

Emergencies, Disasters, and Catastrophes 54

Disaster Mythology 65

Organizational Response 69

Conclusion 71

4 The Emergency Manager: Evolving Roles and Shifting Paradigms 73

Conflicting Roles 74

The Emergency Manager as Program Manager 78

Toward Professionalization 84

Emergency Management as a Field 84

Emergency Management as a Discipline 88

Emergency Management as a Profession 89

Conclusion 90

5 Establishing the Emergency Management Program 93

Program Administration 94

Developing a Governance Structure 94

The Administrative Plan 99

Strategic Planning 99

Formulating Vision 101

Establishing Goals and Objectives 106

Developing the Strategic Plan 108

Enabling Authorities and Legislation 109

Grant Requirements 111

Best Practices 112

Program Elements 113

Resource Management 113

Training 115

Finance 116

Program Evaluation 118

Quantitative Assessment Tools 118

Qualitative Assessment Tools 119

Exercise Programs 120

Actual Incidents 123

Corrective Action Program 124

Conclusion 125

6 Assessing Risk 127

The Nature of Risk 128

Risk Assessment Methodologies 129

Hazard Identification 133

Hazard Analysis 140

Simple Matrix Analysis 140

Indicators and Numerical Ranking 143

THIRA and Context Analysis 148

Intuition 149

Impact Analysis 150

Business Impact Analysis (BIA) 150

Adaptive Business Continuity 154

Continuity of Government/Continuity of Operations 155

Federal Guidance 155

Critical Functions and Process Analysis 158

Conclusion 160

7 Developing Strategy 163

A New Look at an Old Model 164

Risk Management Strategy 166

Mitigation Strategy 168

Recovery Strategy 173

Response Strategy 180

Preparedness Strategy 185

Using Strategy to Guide Planning 187

Conclusion 189

8 Planning Concepts 191

Plans Versus Planning 191

The Planning Continuum 197

Planning Methodologies 201

Planning Assumptions 201

Scenario‐Based Planning 202

Functional Planning 205

Capabilities‐Based Planning 207

Effective Planning 208

Simplicity in Planning 209

Operational Phases 210

All‐Hazards Planning 212

Decentralized Execution 212

Putting the Pieces Together 214

General Planning Principles 215

Conclusion 217

9 Planning Techniques and Methods 219

Establish a Planning Structure 219

Use a Meeting Facilitation Process 222

Meeting Agenda 225

Conducting the Meeting 226

The Meeting Memorandum 227

Develop an Action Plan and Set Deadlines 229

Managing Multiple Projects 230

Annual Work Plans 230

Graphic Planning Tools 231

Facilitate Decision‐Making 232

Use Common Plan Formats 234

Determining Plan Content 236

Use Graphic Tools 238

Use Exercises to Test Concepts 242

Keep it Simple 244

Conclusion 245

10 Coordinating Response 247

Operational Response 247

Incident Management Systems 251

Unified and Area Commands 256

Multiagency Coordination Systems 258

Emergency Operations Centers 264

Communications and Interoperability 269

Information Processing 272

Mutual Aid 273

Resource Management and Logistics 274

The Joint Information Center 276

Conclusion 278

11 Leading in Crisis 279

Principles of Emergency Management 280

Program Leadership 282

Building a Leadership Team 282

Establishing Relationships 284

Making Decisions 285

Operational Leadership 286

The Effects of Crisis 286

Barriers to Decision‐Making 287

Crisis Decision‐Making 289

Conclusion 291

12 Crisis Management 293

Barriers to Crisis Management 294

Disengagement and Inexperience 294

Common Leadership Problems 295

Appropriate Roles for Senior Officials 297

Crisis Management 299

Identifying the Crisis 299

Isolating the Crisis 300

Preparing for Crisis Management 301

Hurricane Katrina: Crisis Management Failure 302

Increasing Organizational Effectiveness 304

Crisis Communications 305

Strategic Recovery Issues 307

Catastrophic Events 312

Conclusion 315

Conclusion 317

Bibliography 321

Index 327

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