Priscilla David Catherine Cook-Cottone Raj Sharman H. Raghava Rao Shambhu Upadhaya University at Buffalo, SUNY

Priscilla David Catherine Cook-Cottone

Raj Sharman H. Raghava Rao

Shambhu UpadhayaUniversity at Buffalo, SUNY

Objectives of the Study

• To study the transition of first responders from normal incident response to disaster level patterns

• To analyze the data collected from first responders from the October 2006 Snow Storm in Buffalo to understand their transition

Wednesday, April 19, 2023 University at Buffalo, SUNY 2

Grounded Theory

The Perspective of the First Responder

Open Coding (naming phenomenon)

Axial Coding (process of relating codes to each other)

Selective Coding (finding core categories and themes)


Questions Under StudyDuring the October Storm, first response infrastructure

shifted from normal simple incident response patterns to disaster level patterns (a) Describe how you knew the transition was needed.

(b) Describe how the functions of your unit changed during and after this transition.

Please describe the most difficult tasks during the transition from normal simple incident response patterns to disaster level patterns during the October Storm.


Problems in Evolving Disaster Response Systems Communication systems

Comfort et al., (2004): state that when one method or process fails, the normal psychology of man is to opt for the next method thus overcrowding that method which causes the failure of the alternative method.

Auf der Heide (2006): reports that in some EMS a common radio frequency for

communication has not been established. In the event of a disaster, communication problem are a huge

hindrance when one emergency response team is trying to communicate with another.


Problems in Evolving Disaster Response Systems

Coordination systems Coordination by plan: Definite procedure that has to be

followed by the EMS; experience success or additional challenge based on their activity.

Coordination by feedback: Errors and successes of incidents are noted; lessons are learned from past experience


Coordination Problems: Unexpected HelpUnexpected help: Instant rescue operations are performed by

those who are present on the scene, the civilians. Their attempts to respond to the disaster are often not well coordinated;

lead to impairment of the organizational efficiency during a disaster.

Unexpected help: Auf der Heide (2006): Help comes from unexpected sources when it may not be required. Having more help than for which was planned, leads to the additional coordination problem.


Training and education guides the responders during uncertainties

Three types of responses during disaster recovery: Blind response occurs when the responders do not have

information about the time and severity of the specific call or need.

Time-based response is when information is available to responders based on time of demand (first come first serve basis).

Severity-based response occurs when information is provided about the time and severity of the incident wherein severity is the predominant factor (calls would be triaged)

If resources are used to the maximum and not conserved at the preliminary stage, they are exhausted and are not able to work to the best of their ability at progressing stages of the disaster.


Coordination systems (discussions from Comfort et al., 2004)

Flexible leadership and first responder role adaptationWaugh & Streib (2006): Rigid method of hierarchical decision

making is not effective.Kelly (1995): Flexibility may also play a role in FR efficacy.

FRs often perform tasks beyond their roles and responsibilities.Waugh & Streib (2006): Role adaptation and intensification is

experienced in most disaster response situations


Problems in Evolving Disaster Response Systems

Questions Under StudyDuring the October Storm, first response infrastructure

shifted from normal simple incident response patterns to disaster level patterns (a) Describe how you knew the transition was needed.

(b) Describe how the functions of your unit changed during and after this transition.

Please describe the most difficult tasks during the transition from normal simple incident response patterns to disaster level patterns during the October Storm.



Concepts Category Response

Apparent Magnitude of destruction Magnitude and Complexity of event

“Could visibly see the devastation”

Magnitude of event “The overall scale & severity of damage to widespread area”

Complexity of the event “Complexity and extent of the event made this obvious”



Loss of Electricity Civic infrastructure effects of event

“Major power outage”

Driving Ban “This was very obvious- driving ban, no power”

Disconnection of Cellular Services “Cell phone services swamped”

Limitations of travel for responding units

“We were unable to get our vehicles out of station”

Need to assist public Community Impact “Assist the public with utility problems and transport the sick”

Impact on the public (Panic, etc) “One was able to tell there was a widespread panic”

Need for more resources Resource Demands “When more resources were needed and the call volume kept rising”

Overwhelming Emergency calls “The storm produced a tidal wave of calls”

Inability to keep up with emergency calls

“Call volume increased. Late response increased”

Theoretical Construct: Event Indicators

Theoretical Construct: Impact Indicators


Assessment based on experience Experience as responder “The disaster level was greater than we had ever experienced before”

Communicated about the storm Indicators apparent in operating procedures

“Town-wide communications of the state of the Town”

Shift in response plan “When the emergency response team was activated”

Leadership “By direct orders through supervisors”



Specific change in role Role Adaptation – Type of work changed

“We were tasked with functions not part of our normal duties”

Shift from emergency care to assistance

“Immediate emergency care to more of an assistance team”

Shift from normal operation to public service & assistance

“went from primarily enforcing the law to helping people with home problems”

Augmented work shifts Role Intensity “At work we just extended shifts”Same Function but increase in magnitude

“The functions stayed primarily the same, the scale just became larger”

Handling increased calls “Call volume increased. Late response increased”

Changes in Response Time Increased Difficulty in Role Performance

“Response to specific calls became more difficult because trees, snow”

Theoretical Construct: Experience Indicators

Theoretical Construct: Responder Role Change


Increased Coordination (among Responders, departments)

Coordination, Collaboration and Emergency Operation Plan Activation

“Everybody worked well together”

Different units came together “Unit's came together in a timely manner”

Responders split into teams “We were split up into teams”

Type of Transition in the functions of the unit

“Smoothly”

Increased need for resources Resources and support from outside “more man power”

Insufficient amount of resources “resources became low”

Functions changed to increased information communication with public

“communication with residents ”

Functions did not change( Required outside assistance)

“We just integrated outside assistance were needed”

Personnel relief and respite “able to release a few personnel at a time”

Increased Communication (among Responders, departments)

Communication and coordination issues

“More technology in form of communications”

Problems in Communication (among Responders, departments)- Negative

“Transportation and communication problems”


Theoretical Construct: Integration of Response


Work around for failed systems Failed Systems “Setting up work arounds for failed systems”

Most difficult period during the storm

Storm Impact “This was the most difficult first 8 hours of the storm”

Responder mobility issues “Getting through all of the damage was difficult”

Impact of Driving Ban “Trying to re-open our facility when there were still community driving bans”



Resource Management (Managing the available)

Physical Resource Needs “Deployment of man power”

Need for Resources “Getting man power to handle the severe volume”

Unavailability of Technology- Electricity Loss

“Dealing with power outage and access to pre existing programs.”

Extended shifts Responder Needs “I worked 27 hours in a row after coming off a 12 hour shift”

Personal needs of the Responder “Sleeping in the hall without family on cots for 2 days”

Training “Trying to prepare personnel and equipment to do a job”

Theoretical Construct: Disaster Impact

Theoretical Construct: Resource Demands


Protect the public and provide care/service to them

Concern for safety and community “prevent the public from electrocution hazards ”

Concern for family safety “Making sure home life was ok ”

Delayed response times Delays “Response time to storm victims was much greater”


Theoretical Construct: Community Issues

Conclusion The qualitative analysis of the FR reports regarding the Buffalo

October storm suggests that there are three are three major areas to consider when working towards understanding the nature of the transition to a disaster-level response: disaster-indicators

FRs must be good assessors of event-specific-indicators dynamics-in-transition disaster-impact

i.e., civic-infrastructure-effects, community-impact, and resources-demands use FR experience to evaluate these data.

Also critical is the ability of FRs to negotiate the dynamics of the transition to a disaster. requires role flexibility and adaptation as FRs respond to increases

in the intensity of their work as well as increases complexities of role performance.

the dynamics-in-transition appear to include substantial coordination and communication demands.

the transition to a disaster level response hinges on the actual disaster impact. That is, the impact on systems, physical resources, responders, and the community.


Documents

Priscilla David Catherine Cook-Cottone Raj Sharman H. Raghava Rao Shambhu Upadhaya University at Buffalo, SUNY