Emergency management (also disaster management or emergency preparedness) is the systematic reduction of a community's vulnerability to natural and man-made hazards as well as the coordinated response to disasters after they occur. Emergency management focuses on destructive events that overwhelm a community's ability to handle on its own, such as hurricanes, pandemics, and terrorism. Professional emergency management activities include search and rescue, providing for the basic needs of affected individuals, and issuing evacuation alerts. The management of disasters requires collaboration between individuals, households, non-governmental organizations, and local, provincial, and federal governments.
Although many different terminologies exist globally, the activities of emergency management can be generally categorized into preparedness, response, mitigation, and recovery, although other terms such as disaster risk reduction and prevention are also common. The outcome of emergency management is to prevent disasters and where this is not possible, to reduce their harmful impacts.
Emergency planning ideals
Emergency planning aims to prevent emergencies from occurring, and failing that, initiates an efficient action plan to mitigate the results and effects of any emergencies. The development of emergency plans is a cyclical process, common to many risk management disciplines, such as business continuity and security risk management, wherein recognition or identification of risks as well as ranking or evaluation of risks are important to prepare. Also, there are a number of guidelines and publications regarding emergency planning, published by professional organizations such as ASIS International, National Fire Protection Association (NFPA), and the International Association of Emergency Managers (IAEM).
Emergency management plans and procedures should include the identification of appropriately trained staff members responsible for decision-making when an emergency occurs. Training plans should include internal people, contractors and civil protection partners, and should state the nature and frequency of training and testing. Testing a plan's effectiveness should occur regularly; in instances where several businesses or organizations occupy the same space, joint emergency plans, formally agreed to by all parties, should be put into place.
Safety drills are often held in preparation for foreseeable hazards such as fires, tornadoes, lockdown for protection, and earthquakes, with the participation of both emergency services and people who will be affected. In the U.S., the Government Emergency Telecommunications Service supports federal, state, local and tribal government personnel, industry and non-governmental organizations during a crisis or emergency by providing emergency access and priority handling for local and long-distance calls over the public switched telephone network.
Health and safety of workers
Cleanup during disaster recovery involves many occupational hazards. Often, these hazards are exacerbated by the conditions of the local environment as a result of the natural disaster. Employers are responsible for minimizing exposure to these hazards and protecting workers when possible, including identification and thorough assessment of potential hazards, application of appropriate personal protective equipment (PPE), and the distribution of other relevant information in order to enable the safe performance of work.
Physical exposures
Flooding disasters often expose workers to trauma from sharp and blunt objects hidden under murky waters that cause lacerations and open and closed fractures. These injuries are further exacerbated with exposure to the often contaminated waters, leading to increased risk for infection. The risk of hypothermia significantly increases with prolonged exposure to water temperatures less than 75 degrees Fahrenheit (24 °C). Non-infectious skin conditions may also occur, including miliaria, immersion foot syndrome (including trench foot), and contact dermatitis.
Earthquake-associated injuries are related to building structural components, including falling debris with possible crush injury, burns, electric shock, and being trapped under rubble.
Chemical exposures
Chemicals can pose a risk to human health when exposed to humans in certain quantities. After a natural disaster, certain chemicals can become more prominent in the environment. These hazardous materials can be released directly or indirectly. Chemical hazards directly released after a natural disaster often occur at the same time as the event, impeding planned actions for mitigation. Indirect release of hazardous chemicals can be intentionally released or unintentionally released. An example of intentional release is insecticides used after a flood or chlorine treatment of water after a flood. These chemicals can be controlled through engineering to minimize their release when a natural disaster strikes; for example, agrochemicals from inundated storehouses or manufacturing facilities poisoning the floodwaters or asbestos fibers released from a building collapse during a hurricane. The flowchart to the right has been adopted from research performed by Stacy Young et al.
Biological exposures
Exposure to mold is commonly seen after a natural disaster such as flooding, hurricane, tornado or tsunami. Mold growth can occur on both the exterior and interior of residential or commercial buildings. Warm and humid conditions encourage mold growth. While the exact number of mold species is unknown, some examples of commonly found indoor molds are Aspergillus, Cladosporium, Alternaria and Penicillium. Reaction to molds differ between individuals and can range from mild symptoms such as eye irritation, cough to severe life-threatening asthmatic or allergic reactions. People with history of chronic lung disease, asthma, allergy, other breathing problems or those that are immunocompromised could be more sensitive to molds and may develop fungal pneumonia. Some methods to prevent mold growth after a natural disaster include opening all doors and windows, using fans to dry out the building, positioning fans to blow air out of the windows, cleaning up the building within the first 24–48 hours, and moisture control. When removing molds, N-95 masks or respirators with a higher protection level should be used to prevent inhalation of molds into the respiratory system. Molds can be removed from hard surfaces by soap and water, a diluted bleach solution or commercial products.
For workers in direct contact with human remains, universal precautions should be exercised in order to prevent unnecessary exposure to blood-borne viruses and bacteria. Relevant PPE includes eye protection, face mask or shield, and gloves. The predominant health risk are gastrointestinal infections through fecal–oral contamination, so hand hygiene is paramount to prevention. Mental health support should also be available to workers who endure psychological stress during and after recovery.
Flood waters are often contaminated with bacteria and waste and chemicals. Prolonged, direct contact with these waters leads to an increased risk for skin infection, especially with open wounds in the skin or a history of a previous skin condition, such as atopic dermatitis or psoriasis. These infections are exacerbated with a compromised immune system or an aging population. The most common bacterial skin infections are usually with Staphylococcus and Streptococcus. One of the most uncommon, but well-known bacterial infections is from Vibrio vulnificus, which causes a rare, but often fatal infection called necrotizing fasciitis.
Other salt-water Mycobacterium infections include the slow growing M. marinum and fast growing M. fortuitum, M. chelonae, and M. abscessus. Fresh-water bacterial infections include Aeromonas hydrophila, Burkholderia pseudomallei causing melioidosis, leptospira interrogans causing leptospirosis, and chromobacterium violaceum. Fungal infections may lead to chromoblastomycosis, blastomycosis, mucormycosis, and dermatophytosis. Other numerous arthropod, protozoal, and parasitic infections have been described. A worker can reduce the risk of flood-associated skin infections by avoiding the water if an open wound is present, or at minimum, cover the open wound with a waterproof bandage. Should contact with flood water occur, the open wound should be washed thoroughly with soap and clean water.
Psychosocial exposures
According to the CDC, "Sources of stress for emergency responders may include witnessing human suffering, risk of personal harm, intense workloads, life-and-death decisions, and separation from family." Substance Abuse and Mental Health Services Administration (SAMHSA) provides stress prevention and management resources for disaster recovery responders.
Employer responsibilities
When an emergency situation occurs, employers may be expected to protect workers from all harm resulting from any potential hazard, including physical, chemical, and biological exposure. An employer should provide pre-emergency training and build an emergency action plan (EAP).
Employers should train their employees annually before an emergency action plan is implemented to inform employees of their responsibilities and/or plan of action during emergency situations. The training program should include the types of emergencies that may occur, the appropriate response, evacuation procedure, warning/reporting procedure, and shutdown procedures. Training requirements are different depending on the size of workplace and workforce, processes used, materials handled, available resources and who will be in charge during an emergency.
After the emergency action plan is completed, the employer and employees should review the plan carefully and post it in a public area that is accessible to everyone.
Phases and personal activities
Emergency management consists of five phases: prevention, mitigation, preparedness, response and recovery.
Prevention
Preventive measures are taken at the domestic and international levels and are designed to provide permanent protection from disasters. The risk of loss of life and injury can be mitigated with good evacuation plans, environmental planning, and design standards. An example of this is pandemic prevention.
Build a minimum of two feet to five above the 100 year flood level, or build to the 500 year flood height.
In January 2005, 168 Governments adopted a 10-year plan to make the world safer from natural hazards at the World Conference on Disaster Reduction, held in Kobe, Hyogo, Japan, the results of which were adapted in a framework called the Hyogo Framework for Action.
Mitigation strategy
Disaster mitigation measures are those that eliminate or reduce the impacts and risks of hazards through proactive measures taken before an emergency or disaster occurs.
Preventive or mitigation measures vary for different types of disasters. In earthquake prone areas, these preventive measures might include structural changes such as the installation of an earthquake valve to instantly shut off the natural gas supply, seismic retrofits of property, and the securing of items inside a building. The latter may include the mounting of furniture, refrigerators, water heaters and breakables to the walls, and the addition of cabinet latches. In flood prone areas, houses can be built on stilts. In areas prone to prolonged electricity black-outs installation of a generator ensures continuation of electrical service. The construction of storm cellars and fallout shelters are further examples of personal mitigative actions.
The safe room is a reinforced structure to provide near absolute protection in extreme wind events such as tornadoes and hurricanes.
If one window or door breaks, the roof is more likely to blow off due to the pressure wind coming into the house. Closing all interior doors, reduces the forces on the roof. Doors, windows, and roofs rated for 195 mph (314 km/h) winds are stronger during hurricanes, typhoons and tornadoes. Hurricane-rated garage doors and rolling and accordion shutters at windows can reduce damages.
Preparedness
Preparedness focuses on preparing equipment and procedures for use when a disaster occurs. The equipment and procedures can be used to reduce vulnerability to disaster, to mitigate the impacts of a disaster, or to respond more efficiently in an emergency. The US Federal Emergency Management Agency (FEMA) proposed out a basic four-stage vision of preparedness flowing from mitigation to preparedness to response to recovery and back to mitigation in a circular planning process. This circular, overlapping model has been modified by other agencies, taught in emergency classes, and discussed in academic papers.
FEMA also operates a Building Science Branch that develops and produces multi-hazard mitigation guidance that focuses on creating disaster-resilient communities to reduce loss of life and property. FEMA advises people to prepare their homes with some emergency essentials in the event food distribution lines are interrupted. FEMA has subsequently prepared for this contingency by purchasing hundreds of thousands of freeze-dried food emergency meals ready-to-eat (MREs) to dispense to the communities where emergency shelter and evacuations are implemented. Some guidelines for household preparedness were published online by the State of Colorado on the topics of water, food, tools, and so on.
Emergency preparedness can be difficult to measure. CDC focuses on evaluating the effectiveness of its public health efforts through a variety of measurement and assessment programs.
Preparedness paradox
The preparedness paradox is the idea that the more an individual or society prepares for a disaster, pandemic, or catastrophe; the less the harm if and when that event occurs. Because the harm was minimized, the people then wonder whether the preparation was necessary.
Disaster preparation can be hampered by several cognitive biases and features of certain types of disasters:
Preparedness measures
Preparedness measures can take many forms ranging from focusing on individual people, locations or incidents to broader, government-based "all hazard" planning. There are a number of preparedness stages between "all hazard" and individual planning, generally involving some combination of both mitigation and response planning. Business continuity planning encourages businesses to have a Disaster Recovery Plan. Community- and faith-based organizations mitigation efforts field response teams and inter-agency planning. School-based response teams cover everything from live shooters to gas leaks and nearby bank robberies. Educational institutions plan for cyberattacks and windstorms. Industry specific guidance exists for horse farms, boat owners and more. A 2013 survey found that only 19% of American families felt that they were "very prepared" for a disaster.
The basic theme behind preparedness is to be ready for an emergency and there are a number of different variations of being ready based on an assessment of what sort of threats exist. Nonetheless, there is basic guidance for preparedness that is common despite an area's specific dangers. FEMA recommends that everyone have a three-day survival kit for their household. The CDC has its own list for a proper disaster supply kit.
Like children, people with disabilities and other special needs have special emergency preparation needs. Depending on the disability, specific emergency preparations may be required. FEMA's suggestions for people with disabilities include having copies of prescriptions, charging devices for medical devices such as motorized wheelchairs and a week's supply of medication readily available or in a "go stay kit". In some instances, a lack of competency in English may lead to special preparation requirements and communication efforts for both individuals and responders.
The United States Department of Energy states that "homeowners, business owners, and local leaders may have to take an active role in dealing with energy disruptions on their own." This active role may include installing or other procuring generators that are either portable or permanently mounted and run on fuels such as propane or natural gas or gasoline.
The United States Department of Health and Human Services addresses specific emergency preparedness issues hospitals may have to respond to, including maintaining a safe temperature, providing adequate electricity for life support systems and even carrying out evacuations under extreme circumstances. FEMA encourages all businesses to have an emergency response plan and the Small Business Administration specifically advises small business owners to also focus emergency preparedness and provides a variety of different worksheets and resources.
In addition to emergency supplies and training for various situations, FEMA offers advice on how to mitigate disasters. The Agency gives instructions on how to retrofit a home to minimize hazards from a flood, to include installing a backflow prevention device, anchoring fuel tanks and relocating electrical panels.
Given the explosive danger posed by natural gas leaks, Ready.gov states unequivocally that "It is vital that all household members know how to shut off natural gas" and that property owners must ensure they have any special tools needed for their particular gas hookups. Ready.gov also notes that "It is wise to teach all responsible household members where and how to shut off the electricity," cautioning that individual circuits should be shut off before the main circuit. Ready.gov further states that "It is vital that all household members learn how to shut off the water at the main house valve" and cautions that the possibility that rusty valves might require replacement.
Response
The response phase of an emergency may commence with Search and Rescue but in all cases the focus will quickly turn to fulfilling the basic humanitarian needs of the affected population. This assistance may be provided by national or international agencies and organizations. Effective coordination of disaster assistance is often crucial, particularly when many organizations respond and local emergency management agency (LEMA) capacity has been exceeded by the demand or diminished by the disaster itself. The National Response Framework is a United States government publication that explains responsibilities and expectations of government officials at the local, state, federal, and tribal levels. It provides guidance on Emergency Support Functions that may be integrated in whole or parts to aid in the response and recovery process.
The response phase is when preparedness work is adapted to the situation that appeared. While disaster planning is critically important, the plans rarely match the situation exactly, so the plans need to be adapted. For example, although many airlines have disaster plans, most of those plans also assume that a disaster will happen at an airport they frequently use. If they need to deal with airplane crash in the mountains or the ocean, then the plan is adapted.
On a personal level the response can take the shape either of a shelter-in-place or an evacuation. In a shelter-in-place scenario, a family would be prepared to fend for themselves in their home for many days without any form of outside support. In an evacuation, a family leaves the area by automobile or other mode of transportation, taking with them the maximum amount of supplies they can carry, possibly including a tent for shelter. If mechanical transportation is not available, evacuation on foot would ideally include carrying at least three days of supplies and rain-tight bedding, a tarpaulin and a bedroll of blankets.
Organized response includes evacuation measures, search and rescue missions, provision of other emergency services, provision of basic needs, and recovery or ad hoc substitution of critical infrastructure. A range of technologies are used for these purposes.
Donations are often sought during this period, especially for large disasters that overwhelm local capacity. Due to efficiencies of scale, money is often the most cost-effective donation if fraud is avoided. Money is also the most flexible, and if goods are sourced locally then transportation is minimized and the local economy is boosted. Some donors prefer to send gifts in kind, however these items can end up creating issues, rather than helping. One innovation by Occupy Sandy volunteers is to use a donation registry, where families and businesses impacted by the disaster can make specific requests, which remote donors can purchase directly via a web site.
Medical considerations will vary greatly based on the type of disaster and secondary effects. Survivors may sustain a multitude of injuries to include lacerations, burns, near drowning, or crush syndrome.
Amanda Ripley points out that among the general public in fires and large-scale disasters, there is a remarkable lack of panic and sometimes dangerous denial of, lack of reaction to, or rationalization of warning signs that should be obvious. She says that this is often attributed to local or national character, but appears to be universal, and is typically followed by consultations with nearby people when the signals finally get enough attention. Disaster survivors advocate training everyone to recognize warning signs and practice responding.
Recovery
The recovery phase starts after the immediate threat to human life has subsided. The immediate goal of the recovery phase is to bring the affected area back to normalcy as quickly as possible. During reconstruction, it is recommended to consider the location or construction material of the property.