Lesson 1: Emergency Management Overview

Course Goal

The goal of IS-230.c: Fundamentals of Emergency Management is to introduce you to the fundamentals of emergency management.

This course presents emergency management as an integrated system with resources and capabilities networked together to address all hazards.

This is the first course in the Federal Emergency Management Agency (FEMA) Emergency Management Institute’s independent study Professional Development Series.

 

Course Objectives

At the conclusion of this course, you should be able to:

• Describe the principles and authorities that are the foundation of emergency management.
• Explain how the different partners contribute to emergency management in your community.
• Explain how the core capabilities support the mission areas to ensure preparedness.
• Describe the roles of each partner in emergency management.
• Explain the steps and resources necessary for developing a comprehensive emergency operations plan.
• Explain how to plan, manage, and coordinate resources for an efficient and effective response.
• Explain the functions of emergency management in emergency and day-to-day situations.

 

Lesson Overview

The remainder of this lesson presents an overview of an integrated emergency management system, and where you fit within the system. At the completion of this lesson, you should be able to:

• Identify the intent of emergency management.
• Describe the emergency management principles.
• Describe the history of emergency management.
• Describe evolving national preparedness doctrine.

 

What Is Emergency Management?

Throughout our Nation’s history, communities have always bonded together when disaster strikes. Emergency management simply creates a framework to help communities reduce vulnerabilities to threats and hazards and cope with disasters.

Emergency management is an essential role of government. The Constitution tasks the States with responsibility for public health and safety―hence, they are responsible for public risks, while the Federal Government’s ultimate obligation is to help when State, local, or individual entities are overwhelmed.

The overall goals of emergency management at all levels are:

• First, to reduce the loss of life;
• Then, to minimize property loss and damage to the environment;
• And finally, to protect the jurisdiction from all threats and hazards.

We tend to think of emergency management as a relatively new concept. However, the idea of assessing risks and organizing to deal with those risks has been around, in one fashion or another, since humans began forming civilizations.

Our current vision of emergency management has not always been the same as it is today. Rather, it has evolved to reflect our national values and the threats we face.

Today we seek to create a secure and resilient Nation. We have learned that doing so requires that we work together to build and sustain capabilities across the whole community to prevent, protect against, mitigate, respond to, and recover from the threats and hazards that pose the greatest risk.

 

What Is Emergency Management?

There are numerous definitions of emergency management. The definition below is based on the one developed by the International Association of Emergency Managers (IAEM).

 

Emergency Management: The managerial function charged with creating the framework within which communities reduce vulnerability to threats/hazards and cope with disasters.

 

Why Emergency Management?

The reasons for the emergency management function are timeless and enduring, and include the following:

• Threats and hazards exist—always have and always will.
• Experience and empirical observation indicate that disaster events have a significant impact on humans and the environment.
• Success in dealing with disasters depends primarily on how well prepared, organized, and coordinated we are.
• Experience has shown that emergency management principles and practices actually work to achieve successful outcomes.

 

Integrated Management System

Integrated emergency management is a key concept adopted by emergency managers in the early 1980s. It embodies an all-threats/hazards approach to the direction, control, and coordination of disasters regardless of their location, size, or complexity, and it goes hand-in-hand with the concept of whole community preparedness.

Integrated emergency management is more than a methodology; it is a culture to achieve unity of effort—a way of thinking about emergency management as a joint enterprise. It is intended to create an organizational culture that is critical to achieving unity of effort between government, key community partners, nongovernmental organizations, and the private sector.

Emergency management must be integrated into daily decisions, not just during times of disasters.

 

Why an Integrated Approach?

Integrated emergency management increases emergency management capability by establishing:

• Prior networks, linkages, and partnerships.
• Communication across organizational and jurisdictional boundaries, enabling all emergency functions to communicate with each other.
• Creative thinking about resource shortfalls.
• Coordinated testing, training, and exercising.
• Improved ability to see the “big picture” for simultaneous responses.

 

Emergency Management Principles

Emergency management principles help us identify and apply agreed-upon practices. Before March 2007, there was no agreed-upon definition of principles that could form a basis for emergency management.

The Emergency Management Institute’s Higher Education Project working group identified the following eight principles:

Comprehensive – Emergency managers consider and take into account all hazards, all phases, all stakeholders, and all impacts relevant to disasters.

Progressive – Emergency managers anticipate future disasters and take protective, preventive, and preparatory measures to build disaster-resistant and disaster-resilient communities.

Risk - Driven – Emergency managers use sound risk management principles (threat/hazard identification, risk analysis, and impact analysis) in assigning priorities and resources.

Integrated – Emergency managers ensure unity of effort among all levels of government and all elements of a community.

Collaborative – Emergency managers create and sustain broad and sincere relationships among individuals and organizations to encourage trust, advocate a team atmosphere, build consensus, and facilitate communication.

Coordinated – Emergency managers synchronize the activities of all relevant stakeholders to achieve a common purpose.

Flexible – Emergency managers use creative and innovative approaches in solving disaster challenges.

Professional – Emergency managers value a science- and knowledge-based approach based on education, training, experience, ethical practice, public stewardship, and continuous improvement.

 

Emergency Management: The Roots

Now that you understand the overall intent of the emergency management function, let’s take a moment to look at how the system evolved.

Prior to the 1800s, disasters were managed solely with local resources. In December 1802, fire engulfed the city of Portsmouth, New Hampshire, destroying large areas. This disaster exceeded local capabilities and had a severe impact on commerce for the entire Nation. In response, Congress acted swiftly to pass the Congressional Relief Act of 1803, enabling the Federal Government to be involved in a local disaster.

The next notable era in the evolution of emergency management began with World War II in the 1940s and continued with the Cold War era beginning in the 1950s. During World War II, the Federal Government established civil defense programs, such as air raid warning and emergency shelter systems, to protect the civilian population. The Disaster Relief Act of 1950 gave the President authority to issue disaster declarations that allowed Federal agencies to provide direct assistance to State and local governments.

The Federal Civil Defense Act of 1950 created a nationwide system of civil defense agencies, and defense drills became routine in schools, government agencies, and other organizations. During this era, emergency management was thought of as an extension of the civil defense movement.

In 1952, President Truman issued Executive Order 10427, which emphasized that Federal disaster assistance was intended to supplement, not supplant, the resources of State, local, tribal, and private-sector organizations. Today’s emergency management system supports the premise that disasters are best managed at the lowest possible governmental level, and that Federal assistance supports and does not direct these efforts.

During the 1960s and 1970s, as the Cold War was ending, the Nation experienced numerous devastating natural disasters. These disasters drew the Nation’s attention away from the civil defense mission to the need for well-coordinated Federal response and recovery operations during natural disasters.

As a result, Congress passed the Disaster Relief Act of 1969. This act created a Federal Coordinating Officer to represent the President in the relief effort. The law was extended as the Disaster Relief Act of 1974, which established the process of Presidential disaster declarations.

To ensure coordination of Federal disaster response and recovery, President Carter’s 1979 Executive order merged many of the separate disaster-related responsibilities into a new Federal Emergency Management Agency, or FEMA.

 

Review: A Brief History of Emergency Management Authorities

In order to understand an integrated emergency management system, it is important to first understand how the role of the Federal Government in disaster response has evolved over the past 200 years.

Congressional Act of 1803

The Congressional Act of 1803 was the earliest effort to provide disaster relief on a Federal level after a fire devastated a New Hampshire town. From that point forward, assorted legislation provided disaster support. Between 1803 and 1950, the Federal Government intervened in approximately 100 incidents (earthquakes, fires, floods, and tornadoes).

Defense Production Act of 1950

The Defense Production Act of 1950 was the first comprehensive legislation pertaining to Federal disaster relief. The Disaster Relief Act of 1950 gave the President authority to issue disaster declarations that allowed Federal agencies to provide direct assistance to State and local governments. The Federal Civil Defense Act of 1950 created a nationwide system of civil defense agencies, and defense drills became routine in schools, government agencies, and other organizations.

Executive Order 10427

In 1952, President Truman issued Executive Order 10427, which emphasized that Federal disaster assistance was intended to supplement, not supplant, the resources of State, local, and private-sector organizations. This role is still the same today.

Executive Order 12127

President Carter’s 1979 Executive Order 12127 merged many of separate disaster-related responsibilities into a new Federal Emergency Management Agency (FEMA). FEMA was created to:

• Coordinate Federal emergency authorities, including the administration of disaster response and recovery programs.
• Assume the role of the Federal Disaster Assistance Administration and assume responsibilities from the Federal Preparedness Agency, the Defense Civil Preparedness Agency, the Federal Insurance Administration, the Office of Emergency Preparedness, and the U.S. Fire Administration.

FEMA is headquartered in Washington, DC, with 10 regional offices that help plan, coordinate, and manage disaster assistance activities, including disaster operations, disaster assistance, mitigation, and preparedness. Other activities include providing emergency food and shelter funding for those left homeless, and planning to ensure the continuity of the Federal Government during national security emergencies.

The Stafford Act

Today, the centerpiece legislation for providing Federal aid for emergency and disaster relief is the Robert T. Stafford Disaster Relief and Emergency Assistance Act (Public Law 100-707). The Stafford Act:

• Provides a system of emergency preparedness for the protection of life and property from hazards.
• Vests responsibility for emergency preparedness jointly in the Federal Government, State governments, and their political subdivisions.
• Gives FEMA responsibility for coordinating Federal Government response.

Under the Stafford Act, assistance is limited to:

• Natural catastrophes (including any hurricane, tornado, storm, high water, wind-driven water, tidal wave, tsunami, earthquake, volcanic eruption, landslide, mudslide, snowstorm, or drought), or,
• Regardless of cause, any fire, flood, or explosion.

The Stafford Act is designed to supplement the efforts and available resources of States, tribes, local governments, and disaster relief organizations.

Under the Stafford Act, the President can designate an incident as either an “emergency” or a “major disaster.” Both authorize the Federal Government to provide essential assistance to meet immediate threats to life and property, as well as additional disaster relief assistance.

Post-Katrina Emergency Management Reform Act of 2006

The Post-Katrina Emergency Management Reform Act of 2006 (PKEMRA) provided important provisions, including the key principle that after a major disaster or emergency declaration accelerated Federal assistance could be sent by FEMA, in the absence of a specific request by a State, to save lives and prevent suffering. Among its important provisions, PKEMRA:

• Requires the development of pre-scripted mission assignments as part of the planning efforts for Emergency Support Function (ESF) response efforts.
• Transfers to FEMA various preparedness functions formerly contained within DHS.
• Employs the National Incident Management System (NIMS) and the National Response Framework (NRF) as the framework for emergency response and domestic incident management.
• Requires the development of comprehensive plans to respond to catastrophic incidents to include clear standardization, guidance, and assistance to ensure common terminology, approach, and framework for all strategic and operational planning.
• Directs the development of a National Disaster Recovery Strategy and National Disaster Housing Strategy.
• Amends the Stafford Act to direct FEMA to appoint a Disability Coordinator to ensure that the needs of individuals with disabilities are addressed in emergency preparedness and disaster relief.
• Requires an annual report to Congress on all Federal planning and preparedness efforts.
• Adds protection for household pets and service animals.

 

The Stafford Act

The Robert T. Stafford Disaster Relief and Emergency Assistance Act (Public Law 100-707) created the system in place today by which a Presidential disaster declaration triggers financial and physical assistance through FEMA. The Stafford Act:

• Covers all hazards, including natural disasters and terrorist events.
• Provides primary authority for the Federal Government to respond to disasters and emergencies.
• Gives FEMA responsibility for coordinating Government response efforts. The President’s authority is delegated to FEMA through separate mechanisms.
• Describes the programs and processes by which the Federal Government provides disaster and emergency assistance to State and local governments, tribal nations, eligible private nonprofit organizations, and individuals affected by a declared major disaster or emergency.

 

Stafford Act: Definitions of Emergency and Major Disaster

Under the Stafford Act, the President can designate an incident as:

• An emergency, or
• A major disaster.

In certain circumstances, the President may declare an “emergency” unilaterally, but may only declare a “major disaster” at the request of a Governor who certifies the State and affected local governments are overwhelmed.

Emergency: Any occasion or instance for which, in the determination of the President, Federal assistance is needed to supplement State and local efforts and capabilities to save lives and to protect property and public health and safety, or lessen or avert the threat of a catastrophe in any part of the United States. A variety of incidents may qualify as emergencies. The Federal assistance available for emergencies is more limited than that which is available for a major disaster.

Major Disaster: Any natural catastrophe (including any hurricane, tornado, storm, high water, wind-driven water, tidal wave, tsunami, earthquake, volcanic eruption, landslide, mudslide, snowstorm, or drought), or, regardless of cause, any fire, flood, or explosion, in any part of the United States, which in the determination of the President causes damage of sufficient severity and magnitude to warrant major disaster assistance under this chapter to supplement the efforts and available resources of States, local governments, and disaster relief organizations in alleviating the damage, loss, hardship, or suffering caused thereby.

Major disasters may be caused by such natural events as floods, hurricanes, and earthquakes. Disasters may include fires, floods, or explosions that the President feels are of sufficient magnitude to warrant Federal assistance. Although the types of incidents that may qualify as a major disaster are limited, the Federal assistance available for major disasters is broader than that available for emergencies.

 

Post-Katrina Emergency Management Reform Act

Hurricane Katrina in August 2005 was the most devastating natural disaster in U.S. history. Gaps that became apparent in the response to that disaster led to the Post-Katrina Emergency Management Reform Act of 2006 (PKEMRA). PKEMRA significantly reorganized FEMA, provided it substantial new authority to remedy gaps in response, and included a more robust preparedness mission for FEMA. This act:

• Establishes a Disability Coordinator and develops guidelines to accommodate individuals with disabilities.
• Establishes the National Emergency Family Registry and Locator System to reunify separated family members.
• Coordinates and supports precautionary evacuations and recovery efforts.
• Provides transportation assistance for relocating and returning individuals displaced from their residences in a major disaster.
• Provides case management assistance to identify and address unmet needs of survivors of major disasters.

 

Emergency Management: Evolving Doctrine

Now that you understand the historical roots of emergency management, we’ll review the current doctrine.

Presidential Policy Directive 8, or PPD-8, describes the Nation’s approach to national preparedness. The National Preparedness Goal is the cornerstone for that approach. The Goal identifies the Nation’s core capabilities required for executing the five mission areas of Prevention, Protection, Mitigation, Response, and Recovery.

The National Preparedness System is an integrated set of guidance, programs, and processes that enable us to work together to achieve the National Preparedness Goal.

As a Nation, we are most prepared to face threats and hazards when we work together. The National Preparedness System provides the approach, resources, and tools for us to work together toward achieving our goal of a secure and resilient Nation.

 

Presidential Policy Directive 8

Preparedness requires the commitment of our entire Nation. Presidential Policy Directive 8 (PPD-8) describes the Nation’s approach to preparedness—one that involves the whole community, including individuals, businesses, community- and faith-based organizations, schools, tribes, and all levels of government.

PPD-8 links together national preparedness efforts using the following key elements:

• National Preparedness Goal
• National Preparedness System
• Whole Community Initiative
• Annual National Preparedness Report

 

National Preparedness Goal

The National Preparedness Goal presents an integrated, layered, and all-of-Nation approach to preparedness.

Successful achievement of this Goal will result in a secure and resilient Nation with the capabilities required across the whole community to prevent, protect against, mitigate, respond to, and recover from the threats and hazards that pose the greatest risk.

 

National Preparedness Goal: Capabilities and Mission Areas

The emphasis of the National Preparedness Goal is on building and sustaining core capabilities across five mission areas.

 

What Are Core Capabilities?

The core capabilities are:

• Distinct critical elements necessary to achieve the National Preparedness Goal.
• Essential for the execution of each mission area: Prevention, Protection, Mitigation, Response, and Recovery.

Core Capabilities

Prevention Mission Area Core Capabilities

Planning	Conduct a systematic process engaging the whole community as appropriate in the development of executable strategic, operational, and/or community-based approaches to meet defined objectives.
Public Information and Warning	Deliver coordinated, prompt, reliable, and actionable information to the whole community through the use of clear, consistent, accessible, and culturally and linguistically appropriate methods to effectively relay information regarding any threat or hazard, as well as the actions being taken and the assistance being made available, as appropriate.
Operational Coordination	Establish and maintain a unified and coordinated operational structure and process that appropriately integrates all critical stakeholders and supports the execution of core capabilities.
Forensics and Attribution	Conduct forensic analysis and attribute terrorist acts (including the means and methods of terrorism) to their source, to include forensic analysis as well as attribution for an attack and for the preparation for an attack in an effort to prevent initial or follow-on acts and/or swiftly develop counter-options.
Intelligence and Information Sharing	Provide timely, accurate, and actionable information resulting from the planning, direction, collection, exploitation, processing, analysis, production, dissemination, evaluation, and feedback of available information concerning threats to the United States, its people, property, or interests; the development, proliferation, or use of WMDs; or any other matter bearing on U.S. national or homeland security by Federal, State, local, and other stakeholders. Information sharing is the ability to exchange intelligence, information, data, or knowledge among Federal, State, local, or private sector entities, as appropriate.
Interdiction and Disruption	Delay, divert, intercept, halt, apprehend, or secure threats and/or hazards.
Screening, Search, and Detection	Identify, discover, or locate threats and/or hazards through active and passive surveillance and search procedures. This may include the use of systematic examinations and assessments, sensor technologies, or physical investigation and intelligence.

Protection Mission Area Core Capabilities

Planning	Conduct a systematic process engaging the whole community, as appropriate, in the development of executable strategic, operational, and/or community-based approaches to meet defined objectives.
Public Information and Warning	Deliver coordinated, prompt, reliable, and actionable information to the whole community through the use of clear, consistent, accessible, and culturally and linguistically appropriate methods to effectively relay information regarding any threat or hazard and, as appropriate, the actions being taken and the assistance being made available.
Operational Coordination	Establish and maintain a unified and coordinated operational structure and process that appropriately integrates all critical stakeholders and supports the execution of core capabilities.
Access Control and Identity Verification	Apply a broad range of physical, technological, and cyber measures to control admittance to critical locations and systems, limiting access to authorized individuals to carry out legitimate activities.
Cybersecurity	Protect against damage to, the unauthorized use of, and/or the exploitation of (and, if needed, the restoration of) electronic communications systems and services (and the information contained therein).
Intelligence and Information Sharing	Provide timely, accurate, and actionable information resulting from the planning, direction, collection, exploitation, processing, analysis, production, dissemination, evaluation, and feedback of available information concerning threats to the United States, its people, property, or interests; the development, proliferation, or use of WMDs; or any other matter bearing on U.S. national or homeland security by Federal, State, local, and other stakeholders. Information sharing is the ability to exchange intelligence, information, data, or knowledge among Federal, State, local, or private sector entities as appropriate.
Interdiction and Disruption	Delay, divert, intercept, halt, apprehend, or secure threats and/or hazards.
Physical Protective Measures	Reduce or mitigate risks, including actions targeted at threats, vulnerabilities, and/or consequences, by controlling movement and protecting borders, critical infrastructure, and the homeland.
Risk Management for Protection Programs and Activities	Identify, assess, and prioritize risks to inform Protection activities and investments.
Screening, Search, and Detection	Identify, discover, or locate threats and/or hazards through active and passive surveillance and search procedures. This may include the use of systematic examinations and assessments, sensor technologies, or physical investigation and intelligence.
Supply Chain Integrity and Security	Strengthen the security and resilience of the supply chain.

Mitigation Mission Area Core Capabilities

Planning	Conduct a systematic process engaging the whole community as appropriate in the development of executable strategic, operational, and/or community-based approaches to meet defined objectives.
Public Information and Warning	Deliver coordinated, prompt, reliable, and actionable information to the whole community through the use of clear, consistent, accessible, and culturally and linguistically appropriate methods to effectively relay information regarding any threat or hazard and, as appropriate, the actions being taken and the assistance being made available.
Operational Coordination	Establish and maintain a unified and coordinated operational structure and process that appropriately integrates all critical stakeholders and supports the execution of core capabilities.
Community Resilience	Lead the integrated effort to recognize, understand, communicate, plan, and address risks so that the community can develop a set of actions to accomplish Mitigation and improve resilience.
Long-Term Vulnerability Reduction	Build and sustain resilient systems, communities, and critical infrastructure and key resources lifelines so as to reduce their vulnerability to natural, technological, and human-caused incidents by lessening the likelihood, severity, and duration of the adverse consequences related to these incidents.
Risk and Disaster Resilience Assessment	Assess risk and disaster resilience so that decision makers, responders, and community members can take informed action to reduce their entity’s risk and increase their resilience.
Threats and Hazard Identification	Identify the threats and hazards that occur in the geographic area; determine the frequency and magnitude; and incorporate this into analysis and planning processes so as to clearly understand the needs of a community or entity.

Response Mission Area Core Capabilities

Planning	Conduct a systematic process engaging the whole community as appropriate in the development of executable strategic, operational, and/or community-based approaches to meet defined objectives.
Public Information and Warning	Deliver coordinated, prompt, reliable, and actionable information to the whole community through the use of clear, consistent, accessible, and culturally and linguistically appropriate methods to effectively relay information regarding any threat or hazard and, as appropriate, the actions being taken and the assistance being made available.
Operational Coordination	Establish and maintain a unified and coordinated operational structure and process that appropriately integrates all critical stakeholders and supports the execution of core capabilities.
Critical Transportation	Provide transportation (including infrastructure access and accessible transportation services) for response priority objectives, including the evacuation of people and animals, and the delivery of vital response personnel, equipment, and services into the affected areas.
Environmental Response/Health and Safety	Ensure the availability of guidance and resources to address all hazards including hazardous materials, acts of terrorism, and natural disasters in support of the responder operations and the affected communities.
Fatality Management Services	Provide fatality management services, including body recovery and victim identification, working with State and local authorities to provide temporary mortuary solutions, sharing information with mass care services for the purpose of reunifying family members and caregivers with missing persons/remains, and providing counseling to the bereaved.
Infrastructure Systems	Stabilize critical infrastructure functions, minimize health and safety threats, and efficiently restore and revitalize systems and services to support a viable, resilient community.
Mass Care Services	Provide life-sustaining services to the affected population with a focus on hydration, feeding, and sheltering to those who have the most need, as well as support for reunifying families.
Mass Search and Rescue Operations	Deliver traditional and atypical search and rescue capabilities, including personnel, services, animals, and assets to survivors in need, with the goal of saving the greatest number of endangered lives in the shortest time possible.
On-Scene Security and Protection	Ensure a safe and secure environment through law enforcement and related security and protection operations for people and communities located within affected areas and also for all traditional and atypical response personnel engaged in lifesaving and life-sustaining operations.
Operational Communications	Ensure the capacity for timely communications in support of security, situational awareness, and operations by any and all means available, among and between affected communities in the impact area and all response forces.
Public and Private Services and Resources	Provide essential public and private services and resources to the affected population and surrounding communities, to include emergency power to critical facilities, fuel support for emergency responders, and access to community staples (e.g., grocery stores, pharmacies, and banks) and fire and other first response services.
Public Health and Medical Services	Provide lifesaving medical treatment via emergency medical services and related operations and avoid additional disease and injury by providing targeted public health and medical support and products to all people in need within the affected area.
Situational Assessment	Provide all decision makers with decision-relevant information regarding the nature and extent of the hazard, any cascading effects, and the status of the response.

Recovery Mission Area Core Capabilities

Planning	Conduct a systematic process engaging the whole community as appropriate in the development of executable strategic, operational, and/or community-based approaches to meet defined objectives.
Public Information and Warning	Deliver coordinated, prompt, reliable, and actionable information to the whole community through the use of clear, consistent, accessible, and culturally and linguistically appropriate methods to effectively relay information regarding any threat or hazard and, as appropriate, the actions being taken and the assistance being made available.
Operational Coordination	Establish and maintain a unified and coordinated operational structure and process that appropriately integrates all critical stakeholders and supports the execution of core capabilities.
Economic Recovery	Return economic and business activities (including food and agriculture) to a healthy state and develop new business and employment opportunities that result in a sustainable and economically viable community.
Health and Social Services	Restore and improve health and social services networks to promote the resilience, independence, health (including behavioral health), and well-being of the whole community.
Housing	Implement housing solutions that effectively support the needs of the whole community and contribute to its sustainability and resilience.
Infrastructure Systems	Stabilize critical infrastructure functions, minimize health and safety threats, and efficiently restore and revitalize systems and services to support a viable, resilient community.
Natural and Cultural Resources	Protect natural and cultural resources and historic properties through appropriate planning, mitigation, response, and recovery actions to preserve, conserve, rehabilitate, and restore them consistent with post-disaster community priorities and best practices and in compliance with appropriate environmental and historical preservation laws and executive orders.

 

 

Mission Areas

Mission areas differ from phases of emergency management. Each area is comprised of the capabilities required for executing the mission or function at any time (before, during, or after an incident) and across all threats and hazards. It is important to shift your thinking to capabilities!

Prevention: The capabilities necessary to avoid, prevent, or stop a threatened or actual act of terrorism. As defined by PPD-8, the term “prevention” refers to preventing imminent threats.

Protection: The capabilities necessary to secure the homeland against acts of terrorism and manmade or natural disasters.

Mitigation: The capabilities necessary to reduce loss of life and property by lessening the impact of disasters.

Response: The capabilities necessary to save lives, protect property and the environment, and meet basic human needs after an incident has occurred.

Recovery: The capabilities necessary to assist communities affected by an incident to recover effectively.

 

National Planning Frameworks

For each mission area there is a national planning framework. Each framework contains succinct, high-level descriptions of the coordinating structures necessary to:

• Deliver the core capabilities from that mission area, and
• Support the delivery of core capabilities from the other mission areas.

 

National Preparedness System

The National Preparedness System is an integrated set of guidance, programs, and processes that enables the whole community to meet the National Preparedness Goal. This System is comprised of the six major components shown in the graphic.

Identifying and Assessing Risk

Developing and maintaining an understanding of the variety of risks faced by communities and the Nation, and how this information can be used to build and sustain preparedness, are essential components of the National Preparedness System. A risk assessment collects information regarding the threats and hazards, including the projected consequences or impacts.

Estimating Capability Requirements

To fully understand capability requirements, each community, organization, and level of government must consider single threats or hazards as well as the full range of risks they may face. Using the results from a risk assessment in the context of the desired outcome(s) for each mission area, the required types and levels of capability can be estimated.

Building and Sustaining Capabilities

After completing the estimation process, existing and needed capabilities can be analyzed and gaps
identified. These gaps can be prioritized based on a combination of the desired outcomes, risk
assessments, and the potential effects of not addressing the gaps.

Working together, planners, government officials, and elected leaders can develop strategies to
allocate resources effectively, as well as leverage available assistance to reduce risk. These strategies
consider how to both sustain current levels of capability and address gaps in order to achieve the
National Preparedness Goal.

Planning to Deliver Capabilities

The whole community contributes to reducing the Nation’s risks. Planning for low-probability, high-consequence risks—such as a terrorist attack with nuclear or biological weapons or a catastrophic earthquake affecting multiple jurisdictions—will be a complex undertaking and involve many partners. Federal efforts, therefore, must complement planning at other levels of government, which is often focused on more likely risks. These shared planning efforts form a National Planning System by which the whole community can think through potential crises, determine capability requirements, and address the collective risk identified during the risk assessment process.

Validating Capabilities

Measuring progress toward achieving the National Preparedness Goal will provide the means to decide how and where to allocate scarce resources and prioritize preparedness. This validation process can be done through exercises, remedial action management programs, and assessments.

Reviewing and Updating

The Nation’s security and resilience will be strengthened as it employs the components of the National Preparedness System. Changes in a community’s exposure and sensitivity can and do occur, however, whether from evolving threats and hazards, aging infrastructure, shifts in population, or changes in the natural environment. On a recurring basis, capabilities, resources, and plans should be reviewed to determine if they remain relevant or need to be updated.

 

National Planning Frameworks

Within the National Preparedness System is the National Planning System, which includes a national planning framework for each mission area. Each framework contains succinct, high-level descriptions of the coordinating structures necessary to:

• Deliver the core capabilities from that mission area, and
• Support the delivery of core capabilities from the other mission areas.

Select the links below for more information about each Framework:

• National Prevention Framework
• National Protection Framework - Soon to be Released
• National Mitigation Framework
• National Response Framework
• National Disaster Recovery Framework

Leveraging the Whole Community

Effective emergency management means finding, connecting to, and strengthening community resources by leveraging the expertise and capacity of:

• Individuals and households.
• Private and nonprofit sectors.
• Community entities, including advocacy and faith-based organizations.
• All levels of government.

 

National Incident Management System (NIMS)

NIMS represents a core set of doctrines, concepts, principles, terminology, and organizational processes that enable effective, efficient, and collaborative incident management.

NIMS integrates smart practices into a comprehensive framework for use nationwide by emergency management/response personnel in an all-hazards context. These smart 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.

 

NIMS: Major Components

Five major components make up the NIMS system 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 demobilize, reimburse, and inventory resources.

Command and Management: The Command and Management component of NIMS is designed to enable effective and efficient incident management and coordination by providing a flexible, standardized incident management structure. The structure is based on three key organizational constructs: the Incident Command System, Multiagency Coordination Systems, and Public Information.

Ongoing Management and Maintenance: Within the auspices of Ongoing Management and Maintenance, there are two components: the National Integration Center (NIC) and Supporting Technologies.

 

Emergency Management Programs and Standards

In support of the National Preparedness Goal, two programs for government and private-sector accreditation are available.

• The Emergency Management Accreditation Program (EMAP) is a standard-based voluntary assessment and accreditation process for government programs.
• The Voluntary Private Sector Preparedness Accreditation and Certification Program (PS-Prep™) is a voluntary program primarily serving as a resource for private and nonprofit entities.

 

Emergency Management Accreditation Program (EMAP)

EMAP provides States, territories, and local government emergency management programs with a voluntary accreditation process that is intended to encourage examination of strengths and weaknesses, pursuit of corrective measures, and communication and planning among different sectors of government and the community.

EMAP builds on standards and assessment work by various organizations, adding requirements for documentation and verification that neither standards nor self -assessment alone can provide.

Emergency Management Standards

• Program Management
• Administration and Finance
• Laws and Authorities
• Hazard Identification, Risk Assessment, and Consequence Analysis
• Hazard Mitigation
• Prevention and Security
• Planning
• Incident Management
• Resource Management and Logistics
• Mutual Aid
• Communications and Warning
• Operations and Procedures
• Facilities
• Training
• Exercises, Evaluations, and Corrective Action
• Crisis Communications, Public Education, and Information

 

PS-Prep™

PS-Prep is a voluntary program primarily serving as a resource for private and nonprofit entities interested in instituting a comprehensive business continuity management system.

PS-Prep is the result of Public Law 110-53, Implementing Recommendations of the 9/11 Commission Act, and is intended to improve the preparedness of private-sector and nonprofit organizations. PS-Prep adopts the following three preparedness standards:

ASIS International

The ASIS International Organizational Resilience Standard includes requirements for:

• General Requirements
• Organizational Resilience Management Policy
• Planning
• Implementation and Operation
• Checking (Evaluation)
• Management Review

British Standards Institution (BSI)

The BSI has established the first British standard for business continuity management. It includes two parts: the Code of Practice and the Specification.

National Fire Protection Association (NFPA)

The NFPA Standards Council established the Disaster Management Committee in January 1991. The committee was given the responsibility for developing documents relating to preparedness for, response to, and recovery from disasters resulting from natural, human, or technological events.

The 2010 standards address:

• Leadership and Commitment
• Program Coordinator
• Program Committee
• Program Administration
• Performance Objectives
• Laws and Authorities
• Finance and Administration
• Records Management
• Planning and Design
• Risk Assessment
• Incident Prevention
• Mitigation
• Planning Process
• Common Plan Requirements
• Resource Management
• Mutual Aid/Assistance
• Communications and Warning
• Operational Procedures
• Emergency Response
• Business Continuity and Recovery
• Crisis Communications, Public Information, and Education
• Incident Management
• Emergency Operations Centers (EOCs)
• Training and Education
• Testing and Exercises
• Program Improvement
• Program Review
• Corrective Action

 

Certified Emergency Manager (CEM®)

CEM® is a voluntary certification program offered by the International Association of Emergency Managers (IAEM) for individuals in the emergency management profession.

Certification indicates that the individual has the experience, knowledge, skills, and abilities to effectively manage a comprehensive emergency management program and improve emergency management capabilities.

Select this link for more information on CEM^® certification.

Putting It All Together

The foundation of an integrated management system is the authorities, guidance, policies, principles, and programs presented in this lesson. The key is to engage the whole community to build and sustain capabilities by:

• Contributing to achievement of the National Preparedness Goal by assessing and preparing for the most relevant and urgent risks.
• Establishing an emergency management program based on the emergency management principles.
• Using the guidance provided by the National Preparedness System and NIMS to build capabilities.

 

Resources

This lesson provided information on emergency management principles, systems, and programs. Below are links to get more information.

Acts

• Robert T. Stafford Act
• Post-Katrina Emergency Management Reform Act of 2006
  

Doctrine

• Presidential Policy Directive 8: National Preparedness
• National Preparedness Goal
• National Preparedness System
• National Incident Management System

Emergency Management Programs and Standards

• Emergency Management Accreditation Program (EMAP)
• Private Sector Preparedness Accreditation and Certification Program (PS-Prep™)
• ASIS International
• British Standards Institution (BSI)
• National Fire Protection Association (NFPA)
• International Association of Emergency Managers (IAEM) Certified Emergency Manager (CEM^®) Program

FEMA’s Emergency Management Institute (EMI) Courses: http://training.fema.gov/

• IS-700: National Incident Management System, An Introduction
• IS-800: National Response Framework, An Introduction
• IS-1000: National Preparedness System

 

Lesson Summary

This lesson introduced foundations of emergency management including:

• The intent of emergency management.
• Emergency management principles.
• History of emergency management.
• Evolving national preparedness doctrine.

In the next lesson, you will learn about FEMA’s mission and goals, key players, and the integration of emergency management in local government.