HOW AN EVENT IS MANAGED:
Instead of bogging you down here with the technical descriptive processes of how Emergency Management (EM) is guided and structured, a simple brief of the EM process is provided.
Event management has been an ever evolving process. On a local level, events are typically managed quite well. Experienced career responders, fire-rescue, law enforcement, etc. are trained to respond. They follow an established Incident Command System (ICS) that includes an incident command structure.
The Incident Commander (IC) is that individual in charge of managing the event. If the event is to large or beyond the scope or resources, an
emergency declaration is made. In such a declaration mutual aide agreements,
In most instances it will be the highest ranking officer on the scene. Either Fire-Rescue or Law Enforcement. They will be making the initial assessments and decisions in response to the event. We have to start somewhere.
If the event overwhelms a region or state’s capabilities, a declaration and request is made to the Federal level.
There is always someone in charge; the IC (at least initially) is the highest ranking, knowledgeable responder at a scene. It could be a fire chief from a local station or a qualified law enforcement officer.
Lets recognize them as the first knowledgeable authority representative on scene. If it is deemed that such an individual is not knowledgeable or qualified enough, they may be replaced by a more qualified individual arriving.
The Incident Command System (ICS) takes on a more formal role. The IC will implement an expandable incident command structure. It would include a command staff and the major functions that will be necessary to ensure the event can be managed properly.
The basic layout of the ICS includes the IC and their Command Staff which will typically include an Information Officer, Liaison Officer and a Safety Officer. Supporting the needs of the command staff would be an Operations Section, Planning Section, Logistics Section and a Finance & Administrative Section.
Multiple Impacted Areas: What happens when instead of responding to a single large scale, numerous, different impacted areas are involved?
The ICS system is set up in such a way that responding personnel and resources at these other impacted areas then become a separate incident response team or task force with similar structure that all communicate back to the principle IC. The ICS system is set up to enable it to expand or contract as the need demands.
When the event gets to large to handle with local resources and assets, a state declared emergency opens up a pathway for additional assistance to be made available.
Emergency Management Assistance Compact (EMAC’s) are activated bringing in requested resources, personnel or equipment necessary to manage the event.
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After you’ve read the body of this work, please refer to the ANNEX HOW EVENTS ARE MANAGED (Authority & Guidance). There are additional references from which to gain a more detailed understanding of the entire process.
Working Off the Same Sheet of Music:
We mentioned that the so called same sheet of music is following the established National Incident Management System/Incident Command System (NIMS/ICS) program and its policies and procedures.
It’s a nice thought but in reality not every group, department, agency or administration will work off the same game plan.
Don’t get upset if you show up invited or not invited and realize that NIMS/ICS isn’t packaged neatly in what you were taught or how well your jurisdiction uses it. It appears that ignorance, indifference and politics might well compromise its use right out of the gate.
It’s not always pretty and a good deal of the field operations will suffer through poor management decisions. The entire management process is a bit more fluid as the impact is assessed and decisions are then made.
There has been some significant frustration regarding the effectiveness of NIMS/ICS regarding its application to large scale disasters. COVID-19, Katrina, Deep Water Horizon-Gulf Oil Spill, etc.
Regarding the Horizon Gulf Oil Spill, concerns rose with how politics and public-private partnerships impact a Unified Command structure.
“That local government was a little disconnected. You didn’t see many local government folks represented”. He said “NIMS isn’t being taken seriously enough around the country in both government and the private sector”. We ran across the same disconnect when we were in New Orleans during the response to hurricanes Katrina and Rita.
The Director of the Center for the Study of Disasters and Extreme events at Oklahoma State University, David Neal stated “There is always going to be a political dimension like that”. “A lot of organizations either don’t know how to use NIMS or they don’t want to use it”. Neal feels there is a breaking point for the scalability and span of control for NIMS. It’s having the players interact beforehand so they know each other and what is expected of them.
Jim McKay (2011) “Questions From the Gulf, The Deep Water Horizon Spill Promotes Debate on The National Incident Management System and Unified Response” Emergency Management Magazine:
According to a study performed by Jessica Jensen described and explained the current implementation behavior of counties in the United States with respect to NIMS. That NIMS may be limited in its usefulness as the foundation for our nationwide emergency management system as well as its potential for use in large-scale disaster situations because of the wide variation in the manner in which NIMS is currently being implemented in counties across the United States.
Jensen, Jessica (2011) “The Current NIMS Implementation Behavior of United States Counties,” Journal of Homeland Security and Emergency Management: Vol. 8: Iss. 1, Article 20.
DOI: 10.2202/1547-7355.1815: Available at: http://www.bepress.com/jhsem/vol8/iss1/20
We’re inclined to feel much the same way as the preceding references’. On a local level and in smaller events, the NIMS/ICS system works very well for the most part, but even then not everyone is working off the same sheet of music. It is when an event is so massive as to strain even the most efficient resources that we’ll see pockets of effective response operations while other areas may suffer from a disconnect (regardless of its cause). Span of control is a big issue.
“Organized Chaos”:
If you’ve ever been involved in any significant disaster event, you have seen firsthand how an entire operation seems totally chaotic. Yet, things get done. There are talented individuals who work behind the scenes, doing their jobs following the framework set by the National Incident Management System and Incident Command system.
At times, tasks may slow because someone assumed it was being handled by someone else. The whole process is quite fluid and ever changing.
Things Do Go Wrong:
One of the greatest cries stem from failures in communications. Communication failures can literally involve the inability to communicate with one another. It will likely involve damaged or inoperable communications equipment. Lost cellular/Microwave towers. Phone systems can become over loaded.
It will also involve miscommunications between personnel. There also exists system failures that hinder an ability to communicate between responding groups. Fire-Rescue has had internal radio communication issues. Law enforcement may be unable to communicate with Fire-Rescue at all.
Different language, jargon and code or signal standards have resulted in a call to standardize the communication style with all response groups. “Clear” verbal and written communication style is being sought. More information on this subject is presented in the section on communications.
“Turn Around”: There are a number of highly qualified Responders in all fields of expertise that will be lost. Disasters will keep arising and some of the most effective and knowledgeable personnel will be lost due to retirement, disillusionment, illness or death. Who takes their place? Whenever we lose those individuals, we struggle, trying to communicate the impact of dangers and hazards We also struggle to recognize the resource needs and safety requirements for impacted residents and responders..
As a result of loss in experienced personnel, dangers and hazards may not be addressed properly. Resources and logistical needs may not be sought or requested at the right time.
Span of control
To limit the number of responsibilities and resources being managed by any individual, the ICS requires that any single person’s span of control should be between three and seven individuals, with five being ideal. In other words, one manager should have no more than seven people working under them at any given time. If more than 7 resources are being managed by an individual, then they are being overloaded and the command structure needs to be expanded by delegating responsibilities (e.g. by defining new sections, divisions, or task forces). If fewer than three, then the position’s authority can be absorbed by the next highest ring in the chain of command.
(Source: Emergency Management Institute, IS-200: ICS For Single Resources and Initial Action Incidents, Nov. 2007)
An events on a large scale will continue to strike, sometimes without notice, and others with some leeway for preparedness. Either way, they’re coming and we must do our best to make sure we can react as best we can on a local level. That’s where home is………. but we should be able to play in the sandbox with outside support even at the risk of losing control over to someone else to ensure that resources flow to the operation.
Structure: County – State & Federal Emergency Operation Centers:
US Department of Homeland Security Operations Center
http://www.dhs.gov/dhspublic/interapp/press_release/press_release_0456.xml
The HALO EFFECT:
In emergency management, there needs to be strong and present personalities that place the general public at ease. This work is not partisan, as we seek to recognize a snapshot in time when we needed a calmer and commanding voice.
The COVID-19 Pandemic desperately needed a voice to separate the sensationalism and bombardment from the media and varied special interests to a calmer and knowledgeable one.
Dr. Anthony Stephen Fauci, an American physician and immunologist who has served as the director of the National Institute of Allergy and Infectious Diseases since 1984.
Dr. Fauci had in fact provided a keener sense of calm while still providing reality data that although highly concerning gave rise to hope during one of the world’s worst known pandemics since 1918.
The 9-11 Attacks devastated the very core of our society, country and the world.
It could not have been more apparent than when 9-11 attacks struck New York. Not to undermine the outstanding work done in D.C. Pennsylvania and elsewhere.
Even with the loss of New York City’s emergency management center, public representatives stepped up to the microphones and cameras. Rudolf Gulliani was one such voice.
He brought with him the necessary poise, articulated calm which made most citizens feel that someone was in charge and that the requirements to deal with the devastation were going to be met.
Hurricanes Katrina/Rita: (Gulf Coast) Russel L. Honoré, now a retired Lieutenant General stepped onto the scene following the devastating impact of hurricanes Katrina/Rita shattering New Orleans and the Gulf Coast.
This gentleman came to the forefront when someone was needed to show there was someone in charge, that services and assistance would be provided. “Our number one task is to deal with the concentration of people in New Orleans as well as those that are isolated, and we’re gonna get after it, and umm, I know it is frustrating. We all feel it, we are right here, and these are Americans. These are our people. This is the purpose for which we were formed as an army to protect our nation and our people. This is what we are committed to. We all raised our right hands to support and defend the constitution of the United States against all enemies foreign and domestic, and this storm has been like an enemy.” (General R. Honore)
Superstorm Sandy (U.S. East Coast):
Enter New Jersey Governor Chris Christie following the devastation created by superstorm “Sandy. Gov. Christie was there, present, with a conviction to aid and help the people of New Jersey respond and recover from the storms’ devastation. He demonstrated great communication skills during a period when time was of the essence.
Governor Chris Christie and President Barack Obama hold a press Conference after taking an aerial tour of the damage in New Jersey from Hurricane Sandy and talking to residents in Brigantine, N.J. on Wednesday, Oct. 31, 2012. (Governor’s Office/Tim Larsen)
It takes a certain personality to pull off communicating and commanding the calm following an event. Such individuals are present in much smaller events but are rarely recognized, as media exposure may not be as high.
Simply because these individuals appear at the right time does not imply that everything goes well. It doesn’t! Collectively, we know this to be true. It is however a desire to know that to some degree, we can be reassured that everything will ultimately be O.K. again. When such personalities do not present themselves, we feel the sense of a void. Control is missing and it’s an un-settling feeling at best.
Personalities
Some of the questions we all might have being involved in a disaster event might include what motivates certain people. Some might be motivated by politics, others by personal gain or capital reward. For the most part we have witnessed that the vast majority of responders make their contributions with little fanfare, expect nothing more that the satisfaction of knowing they helped perhaps make someone’s life a little more tolerable following a devastating event. In many cases, these individuals are compensated by their jurisdictions reimbursing them some expenses, others just with the knowledge that they helped.
“It is a complete lack of responsibility in parts of our society, people allowed to feel the world owes them something that their rights outweigh their responsibilities and their actions (or lack of) do not have consequences. Well they do have consequences.” (British Prime Minster, David Cameron: 8.11.2011)
Wrong for the job? Yes, if you are involved in a disaster event, you will surely be exposed or witness the performance of certain individuals, that do not fit the job. It’s all part of dealing with a large group of people during chaotic times. You should feel compelled to speak out clearly through channels and we mean through appropriate channels if you feel someone’s actions or direction will or could lead to grave bodily harm or dangers, speak out. The reason for emphasizing communication for such concern through appropriate channels stems from the misinformation that could be spun, should such information be made public.
Rest assured that even a hint of mistakes or short comings will certainly be magnified and perhaps taken out of context possibly contributing to a heightened state of fear for others. There could always be a down side to speaking out; also part of the beast we call emergency management.
Responsibility and Accountability regarding ineptness or failure. When someone in the highest levels of command say “I am responsible and accountable for operational or response failures”, that implies there will be consequences for such failure. To date there’s been very little accountability for failure or major mistakes. Sadly, there are little or no consequences for failing in response to disaster events.
There are many individuals who show up to help but actually get in the way of operational success. They need to be recognized and re-directed to where they can do the best good (or least amount of harm).
Stopping or Halting a Task or Operation:
Under What Circumstances Does One By-Pass Command Structure in the Name of Safety:
In the field, responders may have access to the best available information being supplied to them from or through the Incident Commander (IC). Seasoned responders will know that in many instances field conditions and quickly leave their best judgment in play. Note, there will still be protocol to follow in the absence of clear instruction from an IC.
Example: An experienced officer of a fire house responded to a scene and so happened came across an armed Pipe Bomb or Improvised Explosive Device (IED). Under the direction from this officer, the bomb was returned to the fire house (allegedly handled, partially disassembled/ re-assembled) and stored upon a radiator in the house after finally making a call into a bomb squad.
Individuals attached to this call could have clearly by-passed immediate command (the officer), and communicated their concerns up the Chain of Command, or separated themselves from the situation. Could there have been repercussions? Absolutely, but one should rather be alive and well and assuring the safety of others around them, than dealing with fall-out from their decision later. Did it happen? (NO) Should it have?
“Have the courage of conscience to say “NO” to orders which are poorly thought through, unnecessarily hazardous, or cruel or humiliating to those suffering, their families or your colleagues.”
Ref: To Be A First Responder, Jan 8, 2008 Forward
Response and Delays:
As a principle phase of emergency management, response is speculative before an event makes impact. We are told to prepare, to be self reliant for at least the first 72 hours. Suffice it to say that there may be no definitive time frame to expect disaster response. This is true, especially in large scale events. Delays can been seen also if the impacted area(s) are rural and difficult to reach.
Following the devastation of hurricanes Katrina and Rita hitting the US Gulf Coast, we met a young man working just outside New Orleans. Asked how he was faring, his response was moving. He said that he lived in the bayou well south of New Orleans that was totally flooded. With some frustration in his voice that nobody reached his family or community for almost two weeks. In the earlier stage of the disaster, two family members perished. They were fighting to survive. He said he knew that aide would come eventually. It did come, in the form of a unit from the Royal Canadian Mounted Police. Grateful to have them come to assist, he was still quite angry that it took so long for any kind of aide to arrive.
In preparation of hurricane Sandy, early staging of many assets proved beneficial. It takes time to properly address even the most basic needs following a major event. Even as paths are cleared for response vehicles to gain access to impacted areas, time is needed to coordinate public works, Road & Bridge crews and others designated to perform initial tasks to allow the response process to begin. In some instances equipment used in such operations may have been damaged, destroyed or rendered inoperable. This of course delays access to impacted sites and those in immediate need.
Equipment and materials may also be stifled to begin the first phases or response. The very responder needed to perform the most essential tasks may not be able to get out of their immediate area to respond. They too may have suffered personal losses may hinder initial response capabilities.
Although other strategies may exist to address the lost capabilities of the initial responders, even the best of plans may not fit ever changing scene demands.
The factors contributing to response delay can seem endless and is almost always perceived as ineptness on the part of the “Government” or responders. All of the demands to properly meet even the most basic needs of impacted peoples can be a daunting task. There have been critical government failures at many emergency/disaster events. The COVID-19 Pandemic has changed everything and will impact how we respond for decades. Hurricanes Katrina/Rita as well as the Gulf Coast oil Sill has prompted considerable changes in response protocol to help meet crucial needs following a disaster. These logistical first demands may include safe water, food, and basic shelter.
Emergencies and Disasters Defined:
EMERGENCY (emerg-gen-cy)
1: An unforeseen combination of circumstances or the resulting state that calls for Immediate action.
2: An urgent call for assistance or relief (the governor declared a state of emergency after the flood.)
DISASTER (di-sas-ter)
A sudden calamitous event bringing great damage, loss or destruction; broadly: a sudden or great misfortune or failure.
Synonyms: apocalypse, calamity, catastrophe, tragedy. (Source: Webster Dictionary)
As you read this work the most recent (not yet named) disaster(s) will come to be. This past years’ winter storm, the Mid-West Tornadoes.
Events such as the COVID-19 (Corronavirus Pandemic), 2019-2020 Fires of Australia, Hurricane Sandy, 2012, the 2012 Leap Year Tornadoes, floods of 2011 on the U.S. East Coat, Hurricanes Katrina-Rita, Andrew, Storms of 2004.
Earthquakes such as 2011-Tohoku earthquake and tsunami,
2004 Indian Ocean Earthquake and tsunami (with a death toll of over 230,000 people), Kobe,
Loma Prieta, fires such as the 1991 Oakland Hills fire storm, chemical releases such as Bhopal, nuclear exposure such as the nuclear shutdowns, failures, and partial meltdowns triggered by the 2011 Tōhoku earthquake and tsunami; Three Mile Island and Chernobyl, terrorist acts such as Oklahoma City, September 11th, Madrid and London.
There are also the senseless killings of many individuals by what are called
“Active Shooter”. We must prepare for the uncertainty that emergency and disaster events can present themselves at any given moment.
We need to recognize that each event will prove to be quite unique. We must hold firmly to the developed structure of emergency management and those developed by response organizations. Without a baseline from which to work, we could literally be walking around in the dark.
At these extreme devastating levels, the response capabilities and effectiveness change. For as structured as our response planning is, each large scale event brings with them new challenges that prompt us to change how we respond.
Our world continues to change dramatically, and we need to be able to change how we respond. We will see many more disasters, natural and manmade. We must educate ourselves on how to minimize the negative effects of exposures during a response and recovery operation.
In many instances while performing their respective duties, Responders may fail to address or consider all known or un-recognized threats or exposures to themselves and others.
“Ensuring their safety, ensures ours”
This will sometimes involve protecting responders from themselves.
The new or next major emergency or disasters are battles that will exist in our own backyards. So what are the most important things to teach or train Responders to maximize their safety?
SITUATIONAL AWARENESS:
If one thing should be emphasized, let it be situational awareness and your’ self preservation in the face of danger and hazard exposure while helping others.
Don’t move through a disaster event blindly. Constantly seek, situational awareness that you might always be prepared for the unexpected. Continually review incident action reports and situation briefings.
The typical first wave of responders as noted earlier are those professionally trained, educated and experienced in first response. Road & Bridge Crews, Fire-Rescue, EMS, Law Enforcement, Utilities, etc. They clear the way, put out the fires, deal with hazardous material spills, motor vehicle accidents, medical treatment and management, enforcement of law from those who may harm or cause harm to others.
In most major disasters, it seems as if the disaster actually is in control. We’re just watching and then trying to use our best judgments. Every disaster is unique. It presents threats that may not have been seen by the similar event before it.
“Be ready for the obvious; be highly prepared for the un-expected.”
Even with such training, there are situations where they don’t know exactly what they might have to deal with. These jobs are to deal with the un-expected. Some responders initially find themselves being led by the situation.
Patience with informed decisions becomes strength. In any emergency, whatever situation you may be called to is surely to involve danger to yourself or others.
It doesn’t matter if you’re in a well structured response agency or within a small immediate response unit.
Be firm in determining what the situation is to the best extent possible. What is your mind-set on scene? Will you be distracted by personal issues or concerns?
Don’t jump in blindly. Seek verification and be sure to document evidence where it is present. Stay at a heightened state of awareness. Be attuned to your surroundings, try to see and take in as much as you can. Don’t walk around blinded by distraction. “Be Awake”!
Smart phones and technology devices would stand as a course all its own. Distraction from such devices will arise over and over in briefings and action reports. More to follow. (Please refer to Distraction in the section (DISASTER SITES) for an expanded
For as much as you are there to aid and help those in distress, make sure you stay attuned to your’ self preservation.
First Responders & Disaster Workers Defined:
This work does not intend to debate the definition of a “First Responder” or “Disaster Worker”. Outlined are some of the recognized definitions and then outline the obvious. As mentioned earlier, all First Responders and Disaster Workers will be referred to as “Responders/Workers”.
Natural and man-made disasters have provided all levels of government in many locations with experience in preparing for different types of emergency/disaster events. Today’s disasters include a spectrum of large-scale manmade and natural hazards—wilderness and urban fires, floods, oil spills, hazardous materials releases, etc.
Terrorism has entered our arena of events demanding our response capabilities. The terrorists’ deadly and devastating arsenal of chemical, biological, radiological, nuclear, and high yield explosive weapons as exemplified by the attacks on New York City, The Pentagon and Oklahoma City. These attacks have resulted in greater public and governmental focus on the role of Responders and their capabilities to respond to large-scale emergency events.
A general misconception is that the title of “first responder” refers only to emergency services such as Fire-Rescue, Emergency Medical Services and Law Enforcement. Although these are truly our most recognized first responders, the “first responder” title refers to a variety of trained, emergency response providers. They work within the public, private and government agencies of emergency management, law enforcement, the fire department, school safety, public works, to name a few.
Let’s not quibble over semantics and recognize that at one stage or another, these multitudes of position specialties’ have their place in the response and/or recovery role.
As the site and scale of an emergency or disaster event change, so also does the definition of responder.
Roads and public works crews may be needed to clear safe paths through debris or road blockage to allow movement of response vehicles, public health-Emergency Medical Services and the entire medical system is geared to engage themselves as first responders and first receivers.
Electrical companies, gas, chemical firms, shelters along with the literally hundreds of volunteer groups and organizations gear up in response to help others and one another in times of crisis. Stores and commercial properties often get involved as best they can to assist with response either through pre-existing contract or agreements or through event specific decisions.
First Responders then encompass a much larger list of positions and job descriptions which may be included in the role of first responder. “Who will save them from themselves”?
Many responders’ knowingly place themselves in harm’s way. They need to know that there exists a strong support mechanism behind them.
We strive to keep you aware of your responsibility to keep yourself safe. Read and study this work as if your very life depended on it. It very well may!
Note: Please refer further to the following: FIRST RESPONDER DEFINITION ANNEX
Volunteer Definition:
We already recognized what positions make up “First Responders” and “Disaster Workers” (responder). Now let us identify how most of them fit into the disaster mix if they are volunteers. According to the National Volunteer Fire Council and the National Fire Protection Association (NFPA), approximately 70%+ of the fire fighters in the United States are volunteers. Let’s not exclude the extraordinary efforts of the hospitals and centers as they serve as first responders and/or “first receiver”.
Definitions:
Volunteers are recognized as being someone who willingly provides his/her services without receiving financial compensation.
Affiliated volunteers are those aligned or affiliated with a municipality, county, state or federal government agency. They also be associated with non government organizations (NGO) such as the American Red Cross, etc.
(Source: Spontaneous Volunteer Management Annex, Marin County, Office of Emergency Services)
It involves those organizations that have been trained for a specific role or function in disaster relief or response during the preparedness, response or recovery phases of a disaster.
Examples of affiliated volunteer groups include Community Emergency Response Teams (CERT), the Auxiliary Communications Service (ACS), the Volunteers in Police Services (VIPS) program, Search and Rescue teams, the Disaster Medical Reserve Corps; Disaster Medical Assistance Teams (DMAT), and American Red Cross (ARC)’ Disaster Action Teams (DAT). The category of affiliated volunteers may be further defined as follows:
It is not typical for professional fire-rescue, EMS, etc. to wait for long periods. They are an immediate defined asset and are most often properly processed through pre-existing aid agreements and already know to some degree what they’re roles will be. It’s then just a matter of where and when they will be deployed.
The volunteers in ongoing programs typically meet regularly and have other responsibilities in addition to their disaster response roles; for example, many are engaged in community disaster education, family preparedness and public safety efforts year-round. Many ongoing programs utilize Disaster Service Worker volunteers.
Volunteers in Reserve Programs. These volunteers are called up at the time of a disaster. They may participate singly or in teams, depending on the program.
- Disaster Service Worker (DSW) Volunteer. Any person registered with a disaster council or the Governor’s Office of Emergency Services (California) for the purpose of engaging in disaster service without pay or other consideration.
- Service Programs. The term “service program” refers to a wide range of programs, including AmeriCorps and the Retired and Senior Volunteer Program (RSVP).
With new technology comes a new form of volunteer. This group of volunteers are termed “Volunteer Technical Communities” (VTC), they use communication and social networking technology to help respond to disasters and improve preparedness. (EM Magazine: Jan/Feb-2012) by Valerie Lucas-McEwen, Contributing Writer.)
- Impressed Volunteer. Any unregistered person impressed into service during a state of war, a state of emergency, or a local emergency by a person having authority to command the aid of the citizens in the execution of his or her duties. This occurs very rarely and usually involves law enforcement or fire department personnel.
All Dressed Up and No Place to Go: Imagine the frustration of scores or hundreds or thousands of volunteers wanting desperately to provide assistance to those impacted by a disaster event, only to find themselves huddled in an auditorium or facility or staging area outside the impacted zone waiting for instruction that sometimes doesn’t seem to come.
Volunteer Convergence
With most disasters comes the on-slaught of great intention. It’s been timeless. People want to help.
- Spontaneous Volunteer (Unaffiliated/Convergent). Spontaneous volunteers’ are not initially affiliated with a response or relief agency or pre-registered with an accredited disaster council. These volunteers do play a significant role in a disasters’ response and recovery.
“Fools Rush In” Allowing our responders to become casualties themselves will lend to the problem and response as opposed to helping it. Providing and educating Responders with regards to their safety and well being will enhance operational success.
Unless the volunteers that are made available to the event are properly recognized and placed into the plan, their arrival becomes simply a convergence upon the scene leading to confusion, lack of communication and frustrations.
Words of advice: Yes, we want you, but not so fast. Don’t come to the disaster scene unless you are asked to or are coordinated through appropriate channels to be utilized. If you are interested in assisting in a disaster event, there are channels by which you can volunteer your services.
Sometimes the management and controlling authority in an event may not be geared to adequately address the use or direction to volunteers for some time following a disaster. Here lies the frustration for both the volunteers as well as the scenes management staff.
The Bottleneck:
Volunteers should all be coordinated through appropriate channels and directed to where they are best suited. Think of those responsible for managing staffing as a sort of “casting director” for a movie. Those that match the right individuals with the correct role will likely prove to be the most successful. It’s not always that easy.
When too many assets turn up in response and there has not been adequate time to manage them into service, a saturation occurs leaving many personnel frustrated with having to wait.
Depending on the size and scope of a disaster, even those individuals or groups who are called into service under “Mutual Aid Agreements or Compacts” (In emergency services, mutual aid is an agreements among emergency responders to lend assistance across jurisdictional boundaries. Even with such agreements, these resources may also have to wait in line pending decisions to place them into service. It’s the wait that seems to bother us all the most. “Who’s holding up the front of the line?” The answer isn’t always so simple.
Circumstances change which may alter the decision as to how and when a resource, task force, strike team, etc. can be pressed into service.
Circumstances might include recognizing hazards that present themselves, that were unknown. Hazardous materials, infrastructure damage, weather conditions, logistics demands, etc.
The communication as to why personnel may have to wait may not always reach waiting Responders or be explained. Hence the frustration of feeling nothing is being done. This doesn’t mean that poor communications, un-qualified or in-experienced individuals within emergency management fields are suitable excuses when they occur. The written work and subsequent animation of: “Who Moved My Cheese? An Amazing Way to Deal with Change in Your Work and in Your Life”, can serve as a tool to depict how change is to be expected and perhaps how to prepare for it.
published in 1998, is a motivational book by Spencer Johnson written in the style of a parable or business fable.
Many faith based groups contribute with collection and distribution of food and supplies. Sometimes, they involve themselves with the manual labor needed to clear debris. An attribute many faith based groups bring is some form or organization or structure.
When volunteers see that not enough (or anything) is being done, some will very well spring into action in frustration. In turn they may not always receive the warm reception from the emergency management community they might expect. They can also place themselves in harm’s way if they do not have the situational awareness that the emergency management community would afford them.
The emergency management community, would like nothing more than to have volunteers provide the assistance they bring to an event. They would however prefer the volunteer groups go through established channels before rendering aid.
“BEFORE YOU COME TO HELP”: Get involved with your local emergency management agencies and non-government organizations such as the American Red Cross, The Salvation Army and others that affiliate themselves with the authorities responsible for disaster response and recovery operations. Don’t place yourself or others in harm’s way by showing up to a disaster site wanting to help. “If you have never run a chainsaw before, maybe now is not the time to learn” (Denise Derrer, PIO, Indiana, DHS). Align yourself with organizations that are geared toward assisting in disasters, and get as much formal training as you possibly can. Your life and safety very well depends on it.
Your community is a great place to start.
If you’re not already aligned with a recognized Gov. Organization or a Non-Government Organization (NGO), make contact beforehand, get the training you require to be a better asset and become registered.
There are numerous organizations that provide direct social service support in your area and many of these have disaster components to prepare and support those in your area. These same volunteers are often the first line of support in other areas when disaster strikes. Community Emergency Response Teams (CERT), Auxiliary Communications Service (ACS), the Volunteers in Police Services (VIPS) program, Search and Rescue teams, the Disaster Medical Reserve Corps, and American Red Cross’ Disaster Action Teams (DAT).
National Voluntary Organizations Active in Disaster (NVOAD): http://www.nvoad.org/
Americorp: http://www.americorps.gov/
Citizencorps: http://www.citizencorps.gov/
American Red Cross: http://www.redcross.org/en/volunteer
“How Are Responders Called Into Action”?
Local emergencies are handled in the professional manner that they have always been addressed.
A communication is made via phone or other means (social media, etc), alerting authorities as to an existing need for emergency services, Fire-Rescue, Emergency Medical Services, Law Enforcement, Public Health, etc.
When the event is so large that local resources, cannot meet the response needs, a local level disaster declaration is made and is communicated to the state level. If a state’s resources are overwhelmed, that state’s governor will make a formal Emergency Declaration to the Federal Emergency Management Agency which seeks federal aid.
It is at these larger scale events, that volunteer needs are greatly needed but often overwhelming to the impacted area authorities. It is precisely for this reason that anyone desiring to serve as a volunteer first align themselves and get pre-registered with a supporting government or NGO.
REGISTERING VOLUNTEERS:
A mandate from the federal government has been put in place seeking guidelines from each state on the pre-registration and management of volunteers in the fields of health care.
(Emergency System for Advance Registration of Volunteer Health Professionals: ESAR-VHP)
Pre-registration of volunteers, other than health care providers? California and Maryland are great examples for expanding the efforts to build a volunteer management system covering the multitude of other volunteer services other than health care professionals, needed in the response and recovery from an event.
Credentialing:
Following Hurricane Katrina/Rita, congress directed FEMA to launch a credentialing program to track the qualifications of its “Reserve” employees, who join the agency temporarily to assist with response and recovery to specific disasters.
“FEMA has not completed implementation of the credentialing program”, stated the Inspector General (IG) of the Dept of Homeland Security.
(Health & Safety, US 6.28.2012 FEMA Still Setting Up Employee Credentialing System, by Mickey McCater)
There are a few states that have formally incorporated a registration process by which Respondersare entered into a database, recognized as a disaster service worker.
“We The People”: More states, local governments and NGO’s need to get actively involved in managing and credentialing volunteer assets. The difficulty still seems to be communications. We know there are volunteers willing to participate, but we can’t seem to pull them together. Why not?
Is California or Maryland’s volunteer registration programs a model for what the rest of the country should be doing? Perhaps some tweaking and changes are needed. If they’re proven to be successful we might want to copy that success.
NOTE: Please Refer to the following link on the Annex for How Events are Managed
Note: Please refer to the following link on the Annex for Registered Responder
