The purpose of the Basic Plan is to identify a shortfall, or a deficiency, in the overall emergency management plan that you have selected. Perhaps the jurisdiction does not a

Emergency Planning

Independent Study 235.b December 2011

FEMA

TABLE OF CONTENTS

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Page Course Overview …………………………………………………………………………………………………………. 1 Unit 1: Course Introduction Introduction ……………………………………………………………………………………………………………….. 1.1 How To Take This Course …………………………………………………………………………………………… 1.1 Case Study: Why Plan? ……………………………………………………………………………………………… 1.4 Course Goals …………………………………………………………………………………………………………….. 1.6 Goal Setting ………………………………………………………………………………………………………………. 1.6 Activity: Personal Learning Goals ………………………………………………………………………………… 1.7 Unit Summary ……………………………………………………………………………………………………………. 1.8 For More Information ………………………………………………………………………………………………….. 1.8 Unit 2: The Planning Process Introduction and Unit Overview …………………………………………………………………………………….. 2.1 Mandates: Incident Management and Coordination Systems ………………………………………….. 2.1 The Emergency Planning Process ………………………………………………………………………………… 2.5 Who Should Be Involved? ……………………………………………………………………………………………. 2.6 How To Get the Team Together …………………………………………………………………………………. 2.10 How Should the Team Operate? ………………………………………………………………………………… 2.11 Activity: Organizational Roles and Individual Skills ……………………………………………………….. 2.14 Unit Summary ………………………………………………………………………………………………………….. 2.15 Knowledge Check …………………………………………………………………………………………………….. 2.16 Unit 3: Threat Analysis Introduction and Unit Overview …………………………………………………………………………………….. 3.1 The Threat Analysis Process ……………………………………………………………………………………….. 3.1 Step 1: Identifying Threats ………………………………………………………………………………………….. 3.2 Step 2: Profiling Threats …………………………………………………………………………………………….. 3.4 Activity: Profiling a Threat …………………………………………………………………………………………… 3.5 Step 3: Developing a Community Profile ………………………………………………………………………. 3.7 Step 4: Determining Vulnerability …………………………………………………………………………………. 3.8 Activity: Prioritizing Risks ………………………………………………………………………………………….. 3.10 Step 5: Creating and Applying Scenarios ……………………………………………………………………. 3.11 Activity: Threat Analysis ……………………………………………………………………………………………. 3.12 Unit Summary ………………………………………………………………………………………………………….. 3.15 For More Information ………………………………………………………………………………………………… 3.16 Knowledge Check …………………………………………………………………………………………………….. 3.17 Unit 4: The Basic Plan Introduction and Unit Overview …………………………………………………………………………………….. 4.1 Components of a Basic Plan ………………………………………………………………………………………… 4.1 Activity: Basic Plan Review …………………………………………………………………………………………. 4.6 Activity: Reviewing Your Community’s Basic Plan ………………………………………………………….. 4.9 Unit Summary ………………………………………………………………………………………………………….. 4.11 Knowledge Check …………………………………………………………………………………………………….. 4.12

TABLE OF CONTENTS

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Unit 5: Annexes Introduction and Unit Overview …………………………………………………………………………………….. 5.1 Annexes ……………………………………………………………………………………………………………………. 5.1 Functional Annexes ……………………………………………………………………………………………………. 5.2 Activity: Reviewing Your EOP’s Functional Annexes ………………………………………………………. 5.4 Hazard-, Threat-, and Incident-Specific Annexes ……………………………………………………………. 5.6 Annex Implementing Instructions ………………………………………………………………………………….. 5.8 Activity: Hazard-Specific Annex Review ……………………………………………………………………….. 5.9 Unit Summary ………………………………………………………………………………………………………….. 5.10 Knowledge Check …………………………………………………………………………………………………….. 5.11 Unit 6: Implementing Instructions Introduction and Unit Overview …………………………………………………………………………………….. 6.1 What Are Implementing Instructions? ……………………………………………………………………………. 6.1 Activity: Which Type Is Best? ………………………………………………………………………………………. 6.6 Who Uses Implementing Instructions? ………………………………………………………………………….. 6.8 Activity: Identifying Possible Agency Implementing Instructions ……………………………………….. 6.9 Unit Summary ………………………………………………………………………………………………………….. 6.10 Knowledge Check …………………………………………………………………………………………………….. 6.11 Unit 7: Course Summary Introduction ……………………………………………………………………………………………………………….. 7.1 The Planning Process …………………………………………………………………………………………………. 7.1 Threat Analysis ………………………………………………………………………………………………………….. 7.3 The Basic Plan …………………………………………………………………………………………………………… 7.5 Annexes ……………………………………………………………………………………………………………………. 7.6 Implementing Instructions ……………………………………………………………………………………………. 7.7 Final Steps ………………………………………………………………………………………………………………… 7.8 Appendix A: Sample Plan: Jefferson County Appendix B: Job Aids Appendix C: Acronym List

Course Overview

COURSE OVERVIEW

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About This Course

This course is designed for emergency management personnel who are involved in developing an effective emergency planning system. This course offers training in the fundamentals of the emergency planning process, including the rationale behind planning. It will develop your capability for effective participation in the all-hazards emergency operations planning process to save lives and protect property threatened by disaster.

FEMA’s Independent Study Program

The Federal Emergency Management Agency’s (FEMA’s) Independent Study Program is one of the delivery channels that the Emergency Management Institute (EMI) uses to provide training to the general public and specific audiences. This course is part of FEMA’s Independent Study Program. In addition to this course, the Independent Study Program includes other courses in the Professional Development Series (PDS) as well as courses in floodplain management, radiological emergency management, the role of the emergency manager, hazardous materials, disaster assistance, the role of the Emergency Operations Center (EOC), and an orientation to community disaster exercises.

FEMA’s independent study courses are available at no charge and include a final examination. You may apply individually or through group enrollment. When enrolling for a course, you must include your name, mailing address, Social Security number, and the title of the course in which you wish to enroll.

If you need assistance with enrollment, or if you have questions about how to enroll, contact the Independent Study Program Administrative Office at:

FEMA Independent Study Program Administrative Office Emergency Management Institute 16825 South Seton Ave. Emmitsburg, MD 21727 (301) 447-1200

Information about FEMA’s Independent Study Program also is available on the Internet at: http://www.training.fema.gov/IS Each request will be reviewed and directed to the appropriate course manager or program office for assistance.

COURSE OVERVIEW

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Course Completion

The course completion deadline for all FEMA Independent Study courses is 1 year from the date of enrollment. The date of enrollment is the date that the EMI Independent Study Office will use for completion of all required course work, including the final examination. If you do not complete this course, including the final examination, within that timeframe, your enrollment will be terminated.

Course Prerequisites

Emergency Planning has no prerequisites.

Final Examination

This course includes a final examination, which you must complete and return to FEMA’s Independent Study Office for scoring. To obtain credit for taking this course, you must successfully complete this examination with a score of 75 percent or above. You may take the final examination as many times as necessary. When you have completed all units, you must take the final examination online. EMI will score your test and notify you of the results.

Unit 1: Course Introduction

UNIT 1: COURSE INTRODUCTION

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Introduction

The knowledge of how to plan for disasters is critical in emergency management. Planning can make a difference in mitigating against the effects of a disaster, including saving lives and protecting property, and helping a community recover more quickly from a disaster. This course, Emergency Planning, is designed to aid emergency management personnel in developing an effective emergency operations plan (EOP). Topics covered include selecting the planning team, the planning process, hazard analysis, and plan format. This course also prepares you to take the classroom course, Workshop in Emergency Management (WEM).

How To Take This Course

This independent study course is designed so that you can complete it on your own, at your own pace. Take a break after each unit, and give yourself time to think about the material, particularly as it applies to your work as an emergency management professional and the situations you have encountered or anticipate encountering on the job. Emergency Planning contains seven units. Each of the units is described below.

• Unit 1, Course Introduction, provides an overview of the course objectives

and instructions for taking the course.

• Unit 2, The Planning Process, provides an overview of the emergency planning process, including the steps involved and how to determine who should be a part of the emergency planning team.

• Unit 3, Threat Analysis, describes the threat analysis process and explains

why conducting a thorough threat analysis is a critical first step in emergency operations planning.

• Unit 4, The Basic Plan, introduces the purpose of the basic EOP and

describes its components.

• Unit 5, Annexes, introduces functional and hazard-, threat-, and incident- specific annexes.

• Unit 6, Implementing Instructions, introduces the different types of

implementing instructions that may be developed at the agency level and how they are used.

• Unit 7, Course Summary, reviews and summarizes the course content and

serves as preparation for the final exam.

UNIT 1: COURSE INTRODUCTION

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Activities

This course will involve you actively as a learner by including activities that highlight basic concepts. Through the use of case studies, the course will also provide you with guidance on actions required in specific situations. These activities emphasize different learning points, so be sure to complete all of them. Compare your answers to the answers provided following the activity. If your answers are correct, continue on with the material. If any of your answers are incorrect, go back and review the material before continuing.

Knowledge Checks

To help you know when to proceed to the next unit, Units 2 through 6 are followed by a Knowledge Check that asks you to answer questions pertaining to the unit content, followed by the answers. When you finish each Knowledge Check, check your answers, and review the parts of the text that you do not understand. It will be to your benefit to be sure that you have mastered the current unit before proceeding to the next unit.

Appendixes

In addition to the course units, this course includes three appendixes. Appendix A contains a sample plan that will be used to complete an activity in Unit 4. Appendix B provides Job Aids, and Appendix C gives a list of the acronyms used in the course.

Final Examination

This course includes a written final examination, which you must complete and submit to FEMA’s Independent Study Office. To obtain credit for taking this course, you must successfully complete the examination with a score of 75 percent or above. You may take the final examination as many times as necessary. When you have completed all units, take the final examination online. EMI will score your test and notify you of the results.

UNIT 1: COURSE INTRODUCTION

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Sample Learning Schedule

Complete this course at your own pace. You should be able to finish the entire courseincluding units, knowledge checks, and the final examinationin approximately 10 hours. The following learning schedule is an example intended to show relative times for each unit.

Unit

Suggested Time

Unit 1: Course Introduction Unit 2: The Planning Process Unit 3: Threat Analysis Unit 4: The Basic Plan Unit 5: Annexes Unit 6: Implementing Instructions Unit 7: Course Summary

1/2 hour 11/2 hours

2 hours 2 hours 2 hours ¾ hour

1¼ hours

UNIT 1: COURSE INTRODUCTION

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Case Study: Why Plan?

Instructions: Read the following case study. As you read, think about how the planning ability of these communities compares with that in your own community. Answer the questions that follow the case study. Then turn the page to check your answers against the answers provided.

At 6:53 p.m. on Friday, October 6, Hurricane Frieda slammed into the Carolinas. A Category 3 hurricane, Frieda dumped 12 inches of rain in as many hours, causing coastal flooding that, combined with wind speeds of 115 m.p.h., demolished 1,000 homes, seriously damaged 25,000 others, and left 150,000 people homeless. Mass evacuation in coastal counties was required. Evacuation in most counties went well. Prior to the hurricane, Green County had conducted a study to estimate the time required to evacuate its population, and the actual time to evacuate was less than planned. Additionally, inland residents were able to survive on their own for several days, thanks to functioning county emergency services. However, evacuation in Washington and Jefferson Counties, which had no emergency plans, was itself a disaster. The decision to recommend evacuation was made too late and was broadcast insufficiently. Furthermore, evacuation routes were not specified. Traffic on westbound two-lane roads crawled to a standstill, and many drivers had to abandon their cars in rising water and proceed on foot in high winds. There were many casualties among those trying to reach shelter. These counties had to request State help immediately to rescue residents. After the storm, these counties were not eligible for the full amount of State aid to rebuild because of their failure to create an emergency plan. 1. What advantages to emergency planning can you list from this case study? 2. What consequences resulted from a lack of planning?

UNIT 1: COURSE INTRODUCTION

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Case Study: Why Plan? (Continued)

Answers to the Case Study Advantages to counties with emergency plans were their ability to: • Evacuate successfully. • Survive on their own for several days. Consequences to counties without emergency plans were: • Their need for immediate assistance. • The casualties resulting from attempted evacuation. • Their ineligibility for the full amount of State aid. (In most States, counties that do not have

emergency plans cannot declare an emergency and are ineligible for any aid or for the full amount of aid.)

The bottom line is that laws require counties to do everything reasonable and prudent to protect lives and property, including emergency planning. In the space below, consider your own community, and list at least three benefits it could gain from having an up-to-date plan.

UNIT 1: COURSE INTRODUCTION

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Course Goals

In Emergency Planning, you will learn how to plan for a disaster. This course will provide you with a foundation that will enable you to: • Answer the question, “Why plan?”

• Describe the threat analysis and capability assessment process.

• Describe the EOP format and content.

• Identify types of community support available and required for response and

recovery.

• State the rationale for a team approach to planning.

• Describe and demonstrate EOP coordination and marketing. • Relate exercises to the planning process. • Develop a plan maintenance program. • Develop and present a personal action plan for emergency planning.

Goal Setting

What do you hope to gain through completing Emergency Planning? Depending on your role in emergency management, your prior experience, and your current level of expertise, your goals may be slightly different from those of other emergency management professionals. Clarifying your goals will help you gain the most from the time you spend completing this course. Take a few minutes to complete the following activity.

UNIT 1: COURSE INTRODUCTION

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Activity: Personal Learning Goals

The purpose of this activity is to help you develop personal goals for this course. Consider the following information:

• The course goals • Your own experience with emergency planning

Think about what you would like to accomplish through this course. Then list three (or more) personal goals for improving your ability to plan for an emergency.

Goals

1. ______________________________________________________

2. ______________________________________________________

3. ______________________________________________________

UNIT 1: COURSE INTRODUCTION

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Unit Summary

Knowing how to plan for a disaster is critical because effective planning can make a difference in:

• Mitigating against a disaster’s effects.

• Helping a community recover more quickly.

This course is designed to aid in developing an effective emergency operations plan. You can complete this course on your own, at your own pace.

The course contains components that will guide you through the learning, including:

• Activities to provide guidance on actions required in specific situations.

• Knowledge Checks to test yourself on what you have learned and review the parts that you do not understand.

• An Appendix that contains an acronym list.

Unit 1 gave you an overview of Emergency Planning and instructions on how to take the course. Unit 2 will examine the planning process.

For More Information

• Comprehensive Preparedness Guide (CPG) 101, “Developing and

Maintaining Emergency Operations Plans”:

http://www.fema.gov/media-library-

data/20130726-1856-25045-1727/cpg_101_v2.pdf

• Electronic Journal of Emergency Management (available free online):

http://members.tripod.com/~Richmond_ESM/index.html

Unit 2: The Planning Process

UNIT 2: THE PLANNING PROCESS

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Introduction and Unit Overview

This unit will provide an overview of the emergency planning process, including who should participate on the planning team. After you complete this unit, you should be able to:

• Describe the key steps in the emergency planning process.

• Identify agencies that should be involved in emergency planning.

• Describe where you fit into the emergency planning process.

Mandates: Incident Management and Coordination Systems On February 28, 2003, the President issued Homeland Security Presidential Directive 5 (HSPD–5), “Management of Domestic Incidents,” which directed the Secretary of Homeland Security to develop and administer a National Incident Management System (NIMS). This system provides a consistent nationwide template to enable Federal, State, tribal, and local governments, nongovernmental organizations (NGOs), and the private sector to work together to prevent, protect against, respond to, recover from, and mitigate the effects of incidents, regardless of cause, size, location, or complexity. This consistency provides the foundation for utilization of NIMS for all incidents, ranging from daily occurrences to incidents requiring a coordinated Federal response. National Incident Management System (NIMS) NIMS is not an operational incident management or resource allocation plan. NIMS represents a core set of doctrines, concepts, principles, terminology, and organizational processes that enables effective, efficient, and collaborative incident management. Building on the foundation provided by existing emergency management and incident response systems used by jurisdictions, organizations, and functional disciplines at all levels, NIMS integrates best practices into a comprehensive framework for use nationwide by emergency management/response personnel in an all-hazards context. These best practices lay the groundwork for the components of NIMS and provide the mechanisms for the further development and refinement of supporting national standards, guidelines, protocols, systems, and technologies. NIMS fosters the development of specialized technologies that facilitate emergency management and incident response activities, and allows for the adoption of new approaches that will enable continuous refinement of the system over time.

UNIT 2: THE PLANNING PROCESS

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NIMS (Continued)

Five major components make up the NIMS approach:

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

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

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