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EMERGENCY MANAGEMENT:
PRINCIPLES AND PRACTICES FOR LOCAL GOVERNMENT
Thomas E. Drabek and Gerard J. Hoetmer, editors.

FROM THE FOREWORD

“This volume, the first comprehensive text in its field, originated in efforts by the Federal
Emergency Management Agency (FEMA) to educate not only front-line emergency
management professionals but also elected and appointed local government officials in the
principles and practice of emergency management.

“In 1983, FEMA and the National Association of Schools of Public Affairs and Administration
(NASPAA) sponsored a conference on emergency management in public administration
education. Conference participants noted the need for "an integrated research base and
body of knowledge (in emergency management) relevant to public administration" and
recommended two approaches to achieve that end: (1) assembling existing research
materials, course outlines, case studies, and other materials to form the requisite body of
knowledge and (2) developing new curriculum materials to bring emergency management
into the mainstream of public administration education.

“Among the steps taken by FEMA as a result of the conference was the formation of a
National Review Panel to develop and implement a plan for introducing emergency
management into public administration education. The review panel's recommendations
included the creation of a textbook that would form the core of an emergency management
curriculum as well as provide practical guidance for local government administrators.
Emergency Management: Principles and Practice for Local Government, is a direct
outgrowth of the review panel's recommendation. The book was developed through a
cooperative agreement with FEMA, which provided partial funding for the project.

“Emergency management as it is practiced today is comparatively new; and, as a number of
the chapters in this volume note, the field is still evolving fairly rapidly. A variety of forces have
affected and will continue to affect its evolution, including changing federal priorities;
research
findings in diverse fields; and shifts in patterns of population distribution and urbanization.
These and other influences on emergency management are explored throughout the volume.

“The emergency management function in local government takes widely diverse forms, but a
number of basic activities must be undertaken by every emergency management department
whatever its size, whatever its budget, and whatever its position in the local government
structure. Emergency Management: Principles and Practice for Local Government
addresses the needs of the emergency manager in any local government, and it does so in
the context of two complementary concepts: comprehensive emergency management (CEM)
and the integrated emergency management system (IEMS).

“CEM is based on the four phases of emergency management: mitigation, preparedness,
response, and recovery. IEMS, which provides both a strategic and operational framework
for the implementation of CEM, calls for the assessment of potential hazards and available
resources and the development of a plan to bring resources into line with risk.

“It is our hope that this book will serve two purposes: first, that it will be a catalyst, assisting
emergency management to take its rightful place in the mainstream of public administration
education; second, that it will become a standard reference for local government
professionals, students of public administration, and practicing emergency managers,
offering them the practical, state-of-the-art information and guidance that they need.”

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FROM THE INTRODUCTION

“This book is about local emergency management. Emergency management is the
discipline
and profession of applying science, technology, planning, and management to deal with
extreme events that can injure or kill large numbers of people, do extensive damage to
property, and disrupt community life. When such events do occur and cause extensive harm,
they are called disasters.

“In popular usage today the term disaster is widely and casually used to describe everything
from a flooded basement to a defeat in football to the sinking of the Titanic. In ancient times
the word was spoken with more care and expressed a deep sense of dread. The original
Latin meaning signified the unfavorable aspect of a star; disaster thus connoted a harmful
influence that came from the heavens and was beyond human control.

“Some of this fear of the unknown, of the uncontrollable and unexpected, still lies behind our
sometimes cavalier use of the word and occasionally rises to the surface. It is most likely to
surface among survivors of disaster, although it may manifest itself as near-exhilaration.
Having escaped death, survivors feel the glow of good fortune; at the same time, they are
sharply aware of their own mortality and are impelled to reach out to those who can confirm
their experience, sharing both their sense of well-being and their sense of loss.

“Survivors of earthquakes, hurricanes, floods, and the like may feel a heightened respect for
the forces of nature; some may also turn to religion to give context to their ordeal. Others
may
begin to feel an especially close kinship with their families or with other people who have
gone through the same experience. Something of that aspect of what survivors undergo has
been described by William James, who was teaching at Stanford at the time of the 1906 San
Francisco earthquake. According to James, the phenomenon of "earthquake love," or the
euphoric condition found among the survivors, was "a kind of uplift . . . that takes away the
sense of loneliness that gives the sharpest edge to the more usual kind of misfortune that
may befall a man." In the words of a survivor of the 1979 tornadoes in Wichita Falls, Texas,
surviving disaster "is a once-in-a-lifetime experience and makes you place more importance
on human relationships and less on material possessions.

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CONTENTS

Introduction / Gerard J. Hoetmer

PART ONE: HISTORY AND FOUNDATIONS OF EMERGENCY MANAGEMENT

1 THE EVOLUTION OF EMERGENCY MANAGEMENT / THOMAS E. DRABEK
Patterns of response to disaster
Emergency management in America: Responses to disaster
Civil defense in the pre-atomic era
The nuclear threat and civil defense
From fallout shelters to crisis relocation planning
The legitimization of comprehensive emergency management
Contributions of behavioral sciences
Issues facing emergency management today
Conclusion

2 ORGANIZING FOR EMERGENCY MANAGEMENT / GARY A. KREPS
Foundations of emergency management: Improvisation and preparedness
Principles of emergency preparedness
A checklist approach to emergency management
Types of emergency management organization
The professional emergency manager: Credibility through performance
Program implementation and review
Conclusion

3 COORDINATING COMMUNITY RESOURCES / DAVID F. GILLESPIE
Coordination: Definition, underlying factors, and benefits
Types of community resources
Critical community systems
Forms of coordination
Summary

4 REACHING OUT: GETTING THE COMMUNITY INVOLVED IN
PREPAREDNESS / T.
JOSEPH SCANLON
Taking the preliminary steps
Developing the plan
Testing and updating the plan
Conclusion

5 PERSPECTIVES AND ROLES OF THE STATE AND FEDERAL
GOVERNMENTS /
TOM DURHAM AND LACY E. SUITER
State role and responsibilities
Role and responsibilities of the federal government
FEMA's role and responsibilities
Other federal agencies
International emergency management
Conclusion

PART TWO: COMPREHENSIVE EMERGENCY MANAGEMENT

6 DISASTER MITIGATION AND HAZARD MANAGEMENT / DAVID R.
GODSCHALK
Evolution of federal mitigation policy
Comprehensive emergency management
Hazard identification
Hazard analysis 143
Preparing mitigation strategies
Mitigation tools and techniques
Mitigation and public policy

7 PLANNING, TRAINING, AND EXERCISING / GUY E. DAINES
Case study: The largest medical evacuation in U.S. history
Plans and planning
Plan development at the local level
Training
Exercising
Conclusion

8 MANAGING DISASTER RESPONSE OPERATIONS / RONALD W. PERRY
Relationship between the emergency plan and response management
Organizational aspects of response
Behavioral responses to disasters
Generic functions
The changing role of emergency managers

9 RECOVERY FROM DISASTER / CLAIRE B. RUBIN
Overview of the recovery process
Recovery research studies
Recovery for disaster victims and for emergency workers
A framework for local recover
ederal and state assistance
The Red Cross and other voluntary assistance
Post-Disaster mitigation
Conclusion

PART THREE: DAILY OPERATIONS AND LEGAL ISSUES

10 Day-to-day management / John H. Pickett and Barbara A. Block
The microsystems
The macrosystems
Proaction and advocacy

11 Liability issues / John C. Pine
Liability under state law
Liability under federal law
Conclusion

PART FOUR: THE FUTURE OF EMERGENCY MANAGEMENT

12 Future directions / William A. Anderson and Shirley Mattingly
Demographic change and future risk
Emerging issues
Disaster research and emergency management
The profession of emergency management

BIBLIOGRAPHY

ILLUSTRATION AND TABLE CREDITS

INDEX

TABLES
1 Selected major U.S. earthquakes
2 Location and damage estimates for potential future earthquakes
3 Saffir/Simpson hurricane scale ranges
6-1 Annual U.S. natural hazard losses for 1970 (actual) and 2000 (projected)
10-1 Local emergency program management staffing

FIGURES

1 Frequently observed short-term effects of major natural disasters
2 Earthquake risks
3 Earthquakes with magnitudes of 5.0 or above, 1963-1988
4 Rail and highway incidents involving hazardous materials
1-1 The devastating 1889 flood in Johnstown, Pennsylvania
1-2 A levee used as a refuge during Mississippi River flooding in 1912
1-3 Drought-plagued Liberal, Kansas (ca. 1930)
1-4 Remains of the Cocoanut Grove nightclub after a 1942 fire
1-5 The city hall in Long Beach, Mississippi, after Hurricane Camille (1969)
1-6 Development of federal organizations with emergency management
responsibilities
1-7 Tornado near Denver, Colorado, airport, 1975
2-1 The "Chief Executive Officer's Checklist," a wallet-sized component of The CEO's
Disaster Survival Kit
2-2 Organization chart of an independent emergency management unit
2-3 Organization chart of an embedded emergency management unit
2-4 Emergency preparedness functions: Implementation framework
3-1 The 1989 explosion at the Phillips Petroleum plant in Pasadena, Texas
3-2 Red Cross workers assisting victims of Hurricane Hugo, 1989
3-3 Volunteer organizations active in disasters
4-1 The mayor's message from the Citizen's Emergency Action Guide, Live Oak,
Texas
4-2 "Survival tips" card given to employees at First Interstate Bank of California 86
4-3 A page from Get Ready for Hurricanes, a bilingual kit developed by the Children's
Television Workshop
5-1 Layout of the Pennsylvania Emergency Operation Center
5-2 Model of state agencies with emergency management responsibilities
5-3 The National Earthquake Hazards Reduction Program: Elements and
implementing
agencies
5-4 Federal agencies and committees providing emergency planning guidance for
radiological emergencies
5-5 Relationships and funding channels in the international relief system
6-1 Emergency management phases
6-2 Map of Lee County, Florida, showing the risk of hurricane flooding according to
storm
category
6-3 Tools and hazards matrix
7-1 Portion of hazard vulnerability analysis of nursing homes near Florida's Tampa
Bay
7-2 Excerpt from Pinellas County (Florida) Hurricane Evacuation Implementation
Guide
7-3 Sample mutual aid agreement
7-4 Relationship of the components within an EOP
7-5 Relationship of EOP components, using specific functions and hazards as
examples
7-6 Sample schedule for development of a county emergency operations plan
7-7 Example of a registration form for evacuation of citizens with special needs
7-8 Routing of last-minute transport requests for evacuation assistance
7-9 Recovery resource request and distribution system
7-10 Sample control sheet and tags for use at security checkpoints
7-11 Sample critique sheet for an exercise
7-12 Example of a typical mass casualty disaster exercise
7-13 Example of a compromise mass casualty disaster exercise
8-1 Mount Pleasant, South Carolina, after Hurricane Hugo, 1989
8-2 First responder and media representative at a hazardous materials incident
8-3 Emergency Operations Center, Carroll County, Maryland
8-4 Emergency Operations Center, Cumberland County, Pennsylvania
8-5 Emergency Operations Center, Minneapolis, Minnesota
8-6 Emergency information system schema
8-7 Interstate 880, Oakland, California, after the 1989 Loma Prieta quake
8-8 Members of the National Guard assisting at the site of the 1989 Sioux City
airplane
crash
9-1 Albion, Pennsylvania, after forty-one tornadoes touched down on May 31, 1985
9-2 Steps for long-term disaster recovery
9-3 Downtown Santa Cruz, California, shortly after the 1989 Loma Prieta earthquake
9-4 Earthquake destruction caused by falling debris
9-5 Beach house destroyed by Hurricane Elena floodwaters
9-6 Framework for the recovery process
9-7 Marilyn Quayle helping to fill out forms at a FEMA assistance center
10-1 Sample pages from the resource guide used in the response to the Hyatt Hotel
skywalk collapse in Kansas City
10-2 Heavy equipment from the private sector being used in the aftermath of the Hyatt
disaster
10-3 A material safety data sheet from the U.S. Coast Guard's Chemical Hazard
Response Information System
10-4 Sample of data transmitted through the Hazard Information Transmission (HIT)
system, a service of the Chemical Manufacturers Association
11-1 Tort liability in emergency planning: Summary of state law
12-1 Disabled citizen at risk
12-2 The "gap" between researchers and practitioners

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1991, 368 pages. Order #DR468.
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The Binomial Bookstore

Emergency Management; Industrial

Rothstein Associates Inc.