Week 11 Public and Private Sector Partnerships ...faculty.uml.edu/gary_gordon/.../documents/Chapter11... · 1 CRIM 2130 Emergency Management Gary A. Gordon, P.E. Week 11 – Public

1 CRIM 2130 Emergency Management

Gary A. Gordon, P.E.

Week 11 – Public and Private Sector Partnerships (Chapter 11 in Introduction to Emergency Management, Phillips, Neal and Webb) Chapter 11 Objectives Now that we have discussed the disaster life cycle and mitigation measures, let’s talk about how it is going to be done. We know that government agencies provide the structure and processes for emergency management and the private sector provides the resources and has the capital wherewithal to accomplish it. We will look at the key players and agencies in the public sector at the local, state and federal levels that manage and shape the emergency management landscape. We will then describe the roles and responsibilities of the public sector entities in the context of disasters and emergency management and discuss the importance of partnering with the private sector. We will look at the impacts disasters have on businesses and explain why it is important for businesses to prepare for disasters. This will lead to a description of the activities businesses undertake in response to disasters and a discussion of the relevance of the private sector to overall community recovery and mitigation. Finally, we will look at the importance of public and private partnerships across all four phases of the emergency management/disaster life cycle. Some key points to keep in mind, as we look at the public-private partnerships, revolve around the cooperation between the public and private sectors, and the volunteer segments. We must consider “stovepiping” in that it is a problem where people and agencies only communicate with their own organizations or sector; “they hold their cards close to their chest”. I think you will recognize that “stovepiping” was an issue leading up to and during 9/11and Hurricane Katrina. To help overcome this to some degree, the private sector is becoming increasingly important to emergency management. This includes the impacts it sustains from disasters and the roles it plays across the 4 phases of emergency management.

California Urban Search and Rescue Team at 9/11 Site

Public Sector It is not too difficult to know that the public sector is comprised of local, state and federal governments. But there are also other government agencies at or in between these commonly



known ones. Now some say that county governments are local. That may be true in some cases, but not others. A county in Texas is the lowest form of government in unincorporated portions of the county, while it is between a local government and the state where there is an incorporated city or town in the county. An example is the incorporated City of Houston, TX in Harris County. Both, I may add, have emergency management agencies. In Massachusetts, where the county is more of a figurehead form of government, the cities and towns and Massachusetts Emergency Management Agency (MEMA) comprise the emergency management chain. So keep this differential in mind when we discuss local government.

Harris County, TX Office of Emergency Management Facility

In Massachusetts, there are regional planning commissions and emergency management committees throughout the state that are either directly involved in or touch upon emergency management. There are also 5 Regional Homeland Security Advisory Councils established under the Massachusetts Executive Office of Public Safety and Security. Their mandate is to develop multi-disciplinary, regional plans so that municipalities work together in preparing for emergencies. There is also the Barnstable County Regional Emergency Planning Committee, which is a coalition of all agencies involved in emergency management and response and represents Cape Cod and Nantucket. Local Government Now that we have set the stage to discuss the public sector, let’s start with local governments. They are comprised of elected officials, where the highest official is usually the county judge, if there is no incorporated municipality, or mayor for a city or board of selectmen chair usually represented an appointed town manager for a town. They have the primary responsibility for emergency management decision making but almost always delegate it to a senior emergency management official. Historically, these individuals are often embedded within the police or fire departments. The emergency management function could be fulfilled by another designated individual located in the office of the “chief executive” or within another department. They include, in descending order of probability, public works, including roads, sewer and water, engineering, planning, parks and recreation, budget and finance, etc. Regardless of where the emergency manager is located at the local level, he or she will work closely with other local government departments, boards and commissions, and establish relationships with the state emergency management agency or department or function.



State Government The Governor of each state is the emergency management decision-making authority. As was discussed, he or she is responsible for declaring a state of emergency after a disaster strikes and is the signature authority for formal requests to FEMA (regional office) to initiate a Presidential disaster declaration. The Governor is also responsible for lobbying the President and Congress for funding or changes in policy in order to assist state(s) with disaster-related issues. He or she has the power to mobilize the National Guard to assist with response and recovery efforts and sets the leadership example and tone for developing intergovernmental relationships and partnerships. This is displayed when working with the local municipal governments and adjacent states regarding “mutual aid” support. Governor Baker, during Snowmageddon 2015, worked with Boston’s Mayor Walsh to assist with many issues, to include the MBTA problems and where to pile the snow. He also worked with abutting states to have their National Guards assist with snow removal. And on behalf of Mayor Walsh and other municipal executives in eastern Massachusetts, he went to Washington to lobby for disaster assistance for the cleanup.

Vermont National Guard Snow Removal Assistance in Massachusetts

Most states, particularly the ones that experience repeated disasters, such as Gulf Coast hurricanes, earthquakes and tornados, have designated emergency management and homeland security offices. There is the Texas Department of Emergency Management (TxDEM), Louisiana Governor’s Office of Homeland Security and Emergency Preparedness (GOHSEP) and, of course the Massachusetts Emergency Management Agency. These organizations handle the day-to-day emergency management functions and operations and are more than just response agencies. They provide training for local governments, volunteer organizations, etc., facilitate disaster exercises and fund initiatives for local emergency management offices. They are the conduit for federal coordination, information and funds. They are instrumental in assisting local governments in gathering data for disaster declaration applications, prepare them and provide the information to FEMA on behalf of the Governor. They promote effective and responsive emergency management and mitigation.



Louisiana GOSHEP Emergency Operations Center

Organization of State Emergency Management and Homeland Security Offices In the 50 states, the emergency management directors report to many sources and/or organizations within the state. They report as shown in the following table.

Report To Number

Governor 12

Adjutant General/National Guard 18

Homeland Security 1

Public Safety 14

State Police 2

Other 3

In Massachusetts, MEMA is located in the Department of Public Safety and Security. Therefore, the Director reports to the Secretary of Public Safety and Security. In Louisiana and as evidenced by the title, the GOSHEP Director reports to the Governor. Reporting to the public safety, homeland security and state police agencies would appear to be the most efficient, as they are focused accordingly. Under the Adjutant General would be the next most effective, but since the National Guard mission is twofold (federal and state), there could be conflicting priorities. And reporting to the Governor could be difficult, as politics could enter into the equation despite the honorable intent. Accrediting State and Local Governments To provide consistency and minimum level of competence, the Emergency Management Accrediting Program (EMAP) focuses on establishing and improving state and local capabilities. It sets emergency management standards for state and local governments to become accredited. The standards and EMAP were developed by a collaborative effort of the National Emergency Management Association (NEMA), International Association of Emergency Managers (IAEM) and DHS. The standards consist of a self-assessment and documentation of capabilities, an on-site assessment by trained, independent assessors, a committee review of



the findings and recommendations, and accreditation by an independent commission. This has helped raise the level of emergency management at the state and local levels. There are 63 criteria to be met to become accredited, including and as per EMAP 2010b:

The designation of an emergency management office A defined budget and finance procedures Development and implementation of programs for activities, such as hazard

Identification, risk assessment and hazard mitigation Use of an operational planning and incident management systems (i.e. WebEOC) Establishment of mutual aid agreements Implementation of an effective warning and communication system Periodic and focused training and exercises Development of a public education and outreach program

From the MEMA website (http://www.mass.gov/eopss/agencies/mema/), you can see that it is EMAP accredited. So are the City of Boston, Commonwealth of Virginia, State of Connecticut and State of Missouri. See http://www.emaponline.org/index.php/what-is-emap/who-is-accredited for a map that shows who is accredited. Federal Government From our civics and history classes, we all know that there are 3 branches of the federal government; executive, legislative and judicial. The discussion on the federal government in this context will be focused on how each branch is involved with and oversees emergency management. You will notice that the judicial branch will not be discussed. This is because it does not get involved with emergency management operations. The Executive Branch derives power from the Constitution. This includes the expanded authority of the President, as Commander-in-Chief, during crises. There are 15 cabinet-level posts, including DHS, the major department in disaster relief efforts, Department of Transportation (DOT) and Department of Defense (DOD). As we all know, FEMA was the designated cabinet-level post under the Clinton administration, but it was later placed under DHS; adding a new layer of bureaucracy for emergency management. DOT and DOD are partners with DHS and FEMA in emergency management and heavily involved in the EOCs via the Emergency Support Functions. The Legislative Branch passes budgets which allow the executive branch to operate. It provides funding, such as grants and matching funds, to state and local governments for disaster projects and initiatives. The President’s Disaster Relief Funds are approved for Presidential Disaster Declarations. But before funds can be released, Congress must approve the funding. This could be a problem, but history has shown that Congress has approved all needed funding for disaster relief. Congress also has the power to provide emergency supplements to bills related to disaster needs. This is important, as without Congressional approval, funding doesn’t happen.

http://www.mass.gov/eopss/agencies/mema/

http://www.emaponline.org/index.php/what-is-emap/who-is-accredited

http://www.emaponline.org/index.php/what-is-emap/who-is-accredited



The Private Sector Now, let’s look at the importance of the private sector in disaster response and recovery. There is an increased concern surrounding the growing awareness of the staggering financial costs of disasters to the private sector. U.S. disasters from 1975 to 1994 cost an estimated $500 billion. Worldwide disasters in the 1990s averaged losses in the vicinity of $66B USD. Recent disasters have highlighted the important role that the private sector plays in responding to disasters. This is primarily due to the private ownership and operation of critical infrastructure, to include electricity, telecommunications, and transportation. The private sector plays an integral role in stimulating community recovery efforts. One example is via sales tax revenues on goods, to include construction materials, once recovery is underway

Wind Farm in West Texas

Impacts of Disasters on the Private Sector The private sector experiences the impacts of disasters in two basic ways; directly and indirectly. Direct impacts include physical damage to buildings and structures, forced closures of businesses as a result of damage, loss of utilities, including electricity, water and telecom. Indirect impacts include employees being unable to get to work, suppliers being unable to deliver necessary raw material, parts and machines/tools and a decline in customers. A third impact could be remote impacts. This would be the result of globalization and increased interdependence on world markets that span national boundaries.



Oil Rig Washed Ashore in Alabama in 2005

The above photograph shows an example of a direct impact. Do you know what an indirect impact would be? How about the crude not getting to the refinery to be processed and the product not getting to the service station for sale? The Private Sector and the Lifecycle of Emergency Management

"It is apparent that the private sector plays both vital and varied roles in emergency management. In fact, it is not an exaggeration to state that the contributions of businesses in

mitigation, preparedness, response, and recovery activities have been woefully underestimated." (McEntire, Robinson, and Weber 2003, p. 453),

How does the private sector operate during the disaster life cycle? How is it impacted? Let’s look at the 4 phases of the disaster life cycle. With regard to preparedness, it has been said that businesses do little to prepare. Business owners, especially the smaller ones (businesses), tend to undertake preparedness activities that are simple, inexpensive, focused on life safety, and are site-specific. That is, those that deal with direct impacts. Preparedness levels have been shown to be higher for larger businesses and those that or have:

Own the building,

Previous disaster experience, and

Are in the financial sector. Effective business disaster preparedness goes beyond life safety. It takes into consideration indirect and remote impacts, and involves collaboration with other businesses and local governmental agencies. How would you think the financial market in NY/NJ prepares for disasters knowing its linkage with the world economic market? How would they prepare for disasters in the foreign markets?



Iconic Wall Street

During response, the level to which the businesses prepare will become evident. Plus, the need for cooperation and coordination, among private and public entities, will become evident. For example and in the aftermath of the 1995 Oklahoma City bombing, gas and electric companies shut down their services to ensure the safety of the site during the response and recovery efforts. Telecommunications companies set up mobile facilitates for cellular networks and contractors operated heavy equipment to lift and clear debris to assist rescue workers.

AT&T Mobility Network Disaster Recovery (Slash Gear)

Post 9/11 response activities relied on the utility and telecommunications companies much like that experienced after the 1995 Oklahoma City bombing. Construction workers were also a huge asset. Other businesses assisted in the performance of critical tasks during this phase, to include debris removal, software support, mass casualty management, sanitation services (i.e. portable toilets), perimeter security (and access control) and fencing, donations management, infrastructure repair, etc. The private sector was also involved in response to Hurricane Katrina in 2005. Businesses were involved in debris removal, because the hurricane and resulting flooding produced huge amounts of wreckage and debris. Private entities, including waste management companies, landfill operators and other contractors were involved in the debris removal and effort, especially that which was contaminated.



Hurricane Katrina Damage in Biloxi, MS

During recovery, the reconstitution of business stimulates the overall recovery of the community. Disasters often create economic winners and losers. The larger businesses tend to fare better than the smaller ones. This is, in part, because businesses that are in good financial shape before a disaster are more able to cope with recovering. Others include those whose market extends beyond the local area and the construction industry. The latter is self-evident. Note that preparedness and post-disaster financial aid are not always associated with positive recovery outcomes. Mitigation involves innovation, entrepreneurship and willingness to take chances. As you look at mitigation measures, remember that the private sector enhances the quality of life, creates jobs, performs critical services and provides opportunities for leisure and recreation. What can be done to mitigate the impact on those businesses that provide products and services we rely upon? What about those businesses that are important to the recovery? You should remember that business activity can be risky; not just for the business owner, but for the community as a whole. The concern is when things go wrong, such as oil spills and hazardous materials incidents, where there will be business interruption and community impacts. Effective mitigation is focused on businesses and communities pursuing economic growth and development in a logical manner so as to avoid unreasonable risks and unnecessary harm. How would you propose this, according to Dennis Mileti (Professor Emeritus of Sociology, University of Colorado), to advocate sustainable hazard mitigation measures? Tools for Achieving Sustainable Hazards Mitigation Mitigation measures can be simple and in the short term. But what about sustainable disaster mitigation measures that are not so simple. They can include restrictions on development, anticipating disasters, covering costs and physical measures that should be put in place. They can be described as follows:

Land-use planning and management, such as subdivision control laws, zoning ordinances, coastal zone management plans and flood plain restrictions. These are usually found at the local and state levels.



Building codes and standards are set from industry trade associations and are enforced though the states and local governments. Examples are the National Electrical Code, BOCA Code (Lecture 8-2) and National Fire Protection Association codes.

Insurance provides coverage and financial assistance for disaster recovery to individuals and businesses. One thing to remember is to avoid anything that would negate coverage. It could be as simple as constructing a building or part thereof in a flood zone or building an addition without using the proper building and other codes. The latter is often because of cost or expediency.

Early and accurate prediction, forecasting and warning of disasters can mitigate damage by preparing early and strengthening a structure based on the reliance of prediction, forecasting and warning.

Engineering, design and construction to handle known and anticipated hazards is the most important structural mitigation measure. Strict adherence to codes and standards is imperative.

Given the above, what are your thoughts about new WTC and mitigation measures that would be employed? I would suggest looking at lessons learned from the 9/11 attacks and problems experienced in response and recovery efforts that could be mitigated structurally and non-structurally.

t New World Trade Center in NYC

Enhancing Public and Private Sector Relationships

"There's no way government can solve the challenges of a disaster with a government-centric approach. It takes the whole team. And the private sector provides the bulk of the services

every day in the community." (FEMA Director, Craig Fugate, FEMA circa 2010) As FEMA Director Fugate suggests, the need to overcome barriers of “stove-piping,” different organizational cultures, different languages and terminology are important to enhance public and private sector relationships. This can be accomplished by, among other things, facilitating communication, cooperation and coordination between and within the sectors. Key dimensions to developing partnerships include:

Sharing situational awareness.



Identifying available response and recovery resources.

Effecting memoranda of agreement (MOA) or understanding (MOU).

Conducting joint training and exercises.

Establishing dedicated liaisons and communication protocols.

Ensuring that there is private sector representation in EOCs and there are staffed business EOCs, as appropriate.

The International Association of Emergency Managers (IAEM) endorses public/private relationships with the following entities and sectors:

Utilities

Transportation companies

Engineers and engineering companies

Building inspectors

Communications

Debris monitoring and management

Temporary housing manufacturers

Construction companies

Food, water and ice retailers

Hardware retailers

Health care facilities

Temporary staff services

Corporations

Private security companies

Private ambulance services

General rental or supply outlets

Restoration companies

Warehouse space and temporary storage facilities It is easy to see that the above entities cover what FEMA Director Fugate envisioned as a “whole team” approach to preparedness, response, recovery and mitigation. You may want to look at the above entities and figure which phase(s) of the disaster life cycle they would be needed in. I think you will find that many of them would be beneficial in multiple phases. Working and Volunteering in the Public and Private Sectors I previous chapters, we have looked at what we can do to work or volunteer in preparing for and/or during a disaster. Let’s look at this topic here with regard to the public and private partnerships. In the public sector, there are the following opportunities:

Police, fire and emergency management services (EMS).

State, local and federal emergency management agencies, homeland security offices and National Guard

State Guards, U.S. Coast Guard, U.S. Coast Guard Auxiliary, Civil Air Patrol, etc.

Other governmental agencies that are not disaster-focused, but carry out disaster-related activities. These can include TSA, EPA, Department of Agriculture, etc. at the federal level.



U.S. Coast Guard Auxiliary Assisting in a Rescue

In the private sector, there are:

Contracted EMS companies.

Internships with companies that are involved with disaster response and management, or have a disaster management department.

Risk management, business continuity planning, crisis communications and preparedness coordination within a company that is disaster-focused or has a disaster management staff. This can include railroads, petrochemical companies or power generating and transmission companies.

Additional credentials and certification of emergency managers in the private sector are important in order to be recognized as experienced, credible and competitive. Also note that credentialing and certifying public agencies and their personnel is becoming more and more important and accepted. In tandem, credentialing and certification of both the public and private sectors provides a sense of qualification and experience leading to credibility.

Documents

Week 11 Public and Private Sector Partnerships ...faculty.uml.edu/gary_gordon/.../documents/Chapter11... · 1 CRIM 2130 Emergency Management Gary A. Gordon, P.E. Week 11 – Public